United States 

Department of 

Agriculture 

Forest Service 

Tongass 

National Forest 

R10-MB-710b 

June 2011 

Ketchikan-Misty Fiords 

Outfitter and Guide 

Management Plan 

Draft Environmental Impact 

Statement 

Volume B, DEIS Appendices 

Tongass National Forest 

Ketchikan-Misty Fiords Ranger District 

Ketchikan, Alaska 

Contact: Sue Jennings 

907-723-0477 

  Mail to: comments‐alaska‐tongass‐ketchikan‐mistyfiord@fs.fed.us
Ketchikan-Misty Fiords Outfitter and Guide Management Plan EIS - Key Acronyms and 

Other Terms 

ACMP Alaska Coastal Management Plan NAGPRA 

Native American Graves 

Protection and Repatriation Act 

ADF&G 

Alaska Department of Fish and 

Game NEPA 

National Environmental Policy 

Act 

AIRFA 

American Indian Religious 

Freedom Act NFS National Forest System 

ANCSA 

Alaska Native Claims Settlement 

Act NHPA 

National Historic Preservation 

Act 

ANILCA 

Alaska National Interest Lands 

Conservation Act NMFS 

National Marine Fisheries 

Service 

BMP Best Management Practices NOAA 

National Oceanic and 

Atmospheric Administration 

CEQ Council on Environmental Quality ROS Recreation Opportunity 

Spectrum 

CFR Code of Federal Regulations RSNT Remote Setting Nature Tours 

CZMA Coastal Zone Management Act SD Service Day 

DN Decision Notice SHPO State Historic Preservation 

Officer 

EA Environmental Assessment SOPA Schedule of Proposed Actions 

ESA Endangered Species Act SUA Special Use Authorization 

FONSI Finding of No Significant Impact T&E Threatened and Endangered 

FSH Forest Service Handbook Forest 

Plan 

Tongass Land and Resource 

Management Plan 

FSM Forest Service Manual TTRA Tongass Timber Reform Act 

IDT Interdisciplinary Team USFWS United States Fish and Wildlife 

Service 

KMRD Ketchikan-Misty Fiords Ranger 

District VCU Value Comparison Unit 

LAC Limits of Acceptable Change 

(process) WA Wilderness Area 

LNT Leave No Trace 

LUD Land Use Designation 

The U.S. Department of Agriculture (USDA) prohibits discrimination in all its programs and activities on the basis of 

race, color, national origin, age, disability, and where applicable, sex, marital status, familial status, parental status, 

religion, sexual orientation, genetic information, political beliefs, reprisal, or because all or part of an individual's 

income is derived from any public assistance program. (Not all prohibited bases apply to all programs.) Persons with 

disabilities who require alternative means for communication of program information (Braille, large print, audiotape, 

etc.) should contact USDA's TARGET Center at (202) 720-2600 (voice and TDD). 

To file a complaint of discrimination, write to USDA, Director, Office of Civil Rights, 1400 Independence Avenue, 

S.W., Washington, D.C. 20250-9410, or call (800) 795-3272 (voice) or (202) 720-6382 (TDD). USDA is an equal 

opportunity provider and employer. 

Front Cover: Margaret Creek bear viewing site. 

Printed on Recycled Paper
Appendix A 

Determination of Need 

for Commercial Uses on 

the Ketchikan-Misty 

Fiords Ranger District

   
   
DETERMINATION OF NEED FOR COMMERCIAL USES ON THE 

KETCHIKAN - MISTY FIORDS RANGER DISTRICT 

TONGASS NATIONAL FOREST 

Introduction 

···---··--··-····--ffie-KeTcfiiKan~l'iilisWFioj'asRaiJg8fOi§trict(KMRD):ha:s-aeyeJoRea:.a-needs-------····· •• 

. .. -···assessment-tQ-g ete rm ine·what-typ eS-Qf-·Qutfitte rIg u ige-usescQu id-take-.p lace-.Q nNational Forest System lanas. As part of this process, an evaluation was maae 

to aetermine the public neea for these commercial services. This aocument tiers 

to the Tongass ForestPlan as amenaea in February 2008 ana the Determination 

of Need and Extent of Commercial Uses within Wilderness Areas on the Tongass 

National Forest (USDA Forest Service 2007). 

Public need is identifiea 'by the Forest Service for activities that are aeemea 

essential or requirea for the well-being of the public ana in oraer to meet the 

intent of the Forest Service's mission to manage ana protect resources, proviae 

for public safety, ana proviae high-quality public recreation services 

Market-generatea aemana or applications for conaucting outfitting/guiaing 

activities, by themselves, ao not constitute neea. laentification of neea is not 

based solely on public aemana for a service, but also consiaers how an 

outfitter/guiae operation can contribute to meeting Forest Plan_management 

objectives. The public's aemana for services, however, can be partially 

determinea by examining current ana past use trends ana other information. 

This neeas assessment focuses on outfitter/guiae activities on wilaemess ana 

non-wildemess National Forest System (NFS) lanas ana aoes not incluae the 

construction of facilities (e.g. trails, shelters, etc.) that are usea by 

outfitter/guiaes. The Wilaemess Act proviaes aaaitional guiaance specific to 

commercial activities in wilaemess areas ana relevant sections of the Act as well 

as Forest Plan ana Forest Service guiaelines for managing outfitter/guides are 

referencea in Appenaix A - Agency Management Direction. 

This aocument is not an analysis of the environmental effects of existing or 

proposed commercial or institutional outfitter/guide operations. A separate 

analysis, known as a visitor capacity, is done in conjunction with the neeas 

assessment to iaentify the recreational capacity of the area. The visitor capacity 

identifies the potential capacity of the area, but aoes not aetermine the amount of 

use that coula occur. The aecision to select the level of outfitter/guiae use, as 

well as the issuance or renewal of outfitter/guiae permits, is accomplishea 

through an analysis of environmental effects of those permits in compliance with 

the National Environmental Policy Act (NEPA). 

1 
The development of this needs assessment included reviews of needs 

assessments from other national forests. These forests included the Tongass, 

Colville-Idaho Panhandle, Wallowa-Whitman, Clearwater, Deschutes, Targhee, 

and the San Juan. 

Authorizations for commercial use on the district have previously been analyzed 

under NEPA foreach outfitter/guide, but an actual needs determination was not 

done. This needs assessment takes a comprehensive approach to examining all -~~~~~-----~ -Oses-concOrrentJ\rNeea-will-noTbedetei1Tiin~eabase-(roneXlsITDg~amj)J.lDis_Qf~--~~~- ~ ~ ~~ --~~-

authorized and actual commercial use on the district. While the quantitative 

information presentecnnti1ls Bocumenf1ITforms our understanBlng onfj-=e-=p~u""br.c\Jc;;r,s~~~­

demand for outfitter/guide services, determination of need will be primarily based 

on the following considerations: skills and equipment required to provide safe 

access to, and use of, the area for the general public; wildemess dependence; 

effects on the biophysical and social resource; and the degree to which 

outfitter/guides can help the Forest Service accomplish special management 

objectives, Ultimately, this needs assessment uses professional judgment that 

incorporates existing use, potential use, trend information, managerial guidelines, 

and legislative direction to determine the public need. 

It should be noted that it is difficult, if not impossible, to identify all the potential 

uses that could exist and meet the demonstrated public need. This document 

may be revisited over time to consider changing public interests and 

management direction. 

Background 

KMRD encompasses 3,262,549 acres, of which 2,142,307 acres are part of Misty 

Fiords National Monument Wildemess (MFNMW). During the past seven years 

(2000 through 2007), the number of outfitter/guides permitted by the KMRD has 

increased from 23 to 43, and authorized commercial use on the district has 

increased from approximately 6,000 to 40,000 service days per year (an increase 

of 660 percent). The growth of the tourism industry in and around Ketchikan has 

sparked much of these increases. The cruise ship industry brought 839,000 

passengers in 2006 compared to 480,688 in 1997 (www.visit-ketchikan.com). 

The number of cruise ship visitors dropped in 2006 from a high of 921,000 in 

2005, but rebounded to 899,638 in 2007. 

While many cruise ship passengers do not access NFS lands, a small 

percentage increase'in cruise ship visitors that do visit has important 

ramifications for use on NFS lands. From 1997 to 2006, the number of 

independent travelers (those arriving via ferry and jet) also increased from 

52,032 to 67,621 visitors per year. 

2 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

The development of this needs assessment included reviews of needs 

assessments from other national forests. These forests included the Tongass, 

Colville-Idaho Panhandle, Wallowa-Whitman, Clearwater, Deschutes, Targhee, 

and the San Juan. 

Authorizations for commercial use on the district have previously been analyzed 

under NEPA foreach outfitter/guide, but an actual needs determination was not 

done. This needs assessment takes a comprehensive approach to examining all -~~~~~-----~ -Oses-concOrrentJ\rNeea-will-noTbedeteriTiin~eabase-(roneXlsITDg~amj)J.li1ts_Qf~--~~~-

authorized and actual commercial use on the district. While the quantitative 

information presentecnnti1ls Bocumenf1ilforms our understanBlng onfj"'e'""'p""'u""'b"'\J""cr;;,s:---~­

demand for outfitter/guide services, determination of need will be primarily based 

on the following considerations: skills and equipment required to provide safe 

access to, and use of, the area for the general public; wildemess dependence; 

effects on the biophysical and social resource; and the degree to which 

outfitter/guides can help the Forest Service accomplish special management 

objectives, Ultimately, this needs assessment uses professional judgment that 

incorporates existing use, potential use, trend information, managerial guidelines, 

and legislative direction to determine the public need. 

It should be noted that it is difficult, if not impossible, to identify all the potential 

uses that could exist and meet the demonstrated public need. This document 

may be revisited over time to consider changing public interests and 

management direction. 

Background 

KMRD encompasses 3,262,549 acres, of which 2,142,307 acres are part of Misty 

Fiords National Monument Wildemess (MFNMW). During the past seven years 

(2000 through 2007), the number of outfitter/guides permitted by the KMRD has 

increased from 23 to 43, and authorized commercial use on the district has 

increased from approximately 6,000 to 40,000 service days per year (an increase 

of 660 percent). The growth of the tourism industry in and around Ketchikan has 

sparked much of these increases. The cruise ship industry brought 839,000 

passengers in 2006 compared to 480,688 in 1997 (www.visit-ketchikan.com). 

The number of cruise ship visitors dropped in 2006 from a high of 921,000 in 

2005, but rebounded to 899,638 in 2007. 

While many cruise ship passengers do not access NFS lands, a small 

percentage increase'in cruise ship visitors that do visit has important 

ramifications for use on NFS lands. From 1997 to 2006, the number of 

independent travelers (those arriving via ferry and jet) also increased from 

52,032 to 67,621 visitors per year. 

2 
The Forest SeNice issues special use permits to outfitter/guides and authorizes 

the amount, type, and location of commercial use. The amount of use authorized 

at the beginning of each season to outfitter/guides is referred to as authorized 

use. The amount of use authorized to outfitter/guides each season can be 

based upon such factors as past business history, resource concerns, and type 

of activity. At the end of each operating season, each outfitter/guide is required 

to report their actual use--the amount of use that actually took place on NFS 

lands. Figure 1 depicts authorized and actual use for outfitter/guides from 2000 ·····~·~~-~-tnr5ugff2006:--·~--·-~-------···-·-·-·····.- .. -----.-~.. . .. ---.~ .. - .. -.----.-.. - ..... ---.. - .............. . 

Figure 1. KMRD Authorized and Actual Commercial Use (2000-2006) 

en 

'" c '" 

Q) 

u ·S 

~ 

Q) 

en 

-0 

~ 

Q) 

.c 

E 

:::J 

Z 

45.000 

40.000 

35.000 

30.000 

25.000 

20.000 

15.000 

10.000 

5.000 

0 

2000 2001 2002 2003 2004 2005 2006 

Year 

__ Authorized 

__ Actual 

Service Day: A day or any part of a day on National Forest System lands for which an outfitter or 

guide provides goods or services. including transportation. to a client 

The differences between authorized and actual use in Figure 1 can be attributed 

to several factors that include: 

• Outfitter/guides using more seNice days than they were authorized; 

• Weather that prevents outfitter/guides from operating 

• Changes in business operations from one year to the next 

• Optimistic projections of demand for business 

3 

__________________________________________________________ Draft Environmental Impact Statement

The Forest SeNice issues special use permits to outfitter/guides and authorizes 

the amount, type, and location of commercial use. The amount of use authorized 

at the beginning of each season to outfitter/guides is referred to as authorized 

use. The amount of use authorized to outfitter/guides each season can be 

based upon such factors as past business history, resource concerns, and type 

of activity. At the end of each operating season, each outfitter/guide is required 

to report their actual use--the amount of use that actually took place on NFS 

lands. Figure 1 depicts authorized and actual use for outfitter/guides from 2000 ··· .. ·~ .. ~~ .. ~ .. tnr5ugff2006:-"·~-""-~-"--""-·""-·"·"·""-"""~ ........ ~-.. - ... - ......... - ....... - .... - .............. . 

. _-- _ ........... _._ ........ _ ............ _ .... _------.................. _ ............ ~...... . . .............. --......... . 

Figure 1. KMRD Authorized and Actual Commercial Use (2000-2006) 

en 

'" c '" 

Q) 

u 

.~ 

Q) 

en 

'0 

~ 

Q) 

.c 

E 

:::J 

Z 

45,000 

40,000 

35,000 

30,000 

25,000 

20,000 

15,000 

10,000 

5,000 

0 

2000 2001 2002 2003 2004 2005 2006 

Year 

-+-Authorized 

__ Actual 

Service Day: A day or any part of a day on National Forest System lands for which an outfitter or 

guide provides goods or services, including transportation, to a client 

The differences between authorized and actual use in Figure 1 can be attributed 

to several factors that include: 

• Outfitter/guides using more seNice days than they were authorized; 

• Weather that prevents outfitter/guides from operating 

• Changes in business operations from one year to the next 

• Optimistic projections of demand for business 

3 
• Market forces that affect certain sectors of the tourism business 

In 2005, there were 47 outfitter/guides using the KMRD with approximately onethird of the outfitter/guides using MFNMW. Outfitter/guides brought 

approximately 25,000 clients to the district, of which 9,000 visited MFNMW (2005 

data, outfitter/guide database). 

The Forest Service issues outfitter/guide permits in order to respond to a 

--- -----ma:mrgementneed-toprovide-high-quality-publicservices-and-assistance-to--------------------

vIsitors ana to meetTo!}gass i\Jatlonal Forest QlanagemenlClQ]ectlves.________ 

Outfitter/guide permittees exist because the Forest Service desires their 

assistance in accomplishing management goals and objectives. 

Outfitter/guides help the Forest Service provide services to the public, protect 

public health and safety, and attain management objectives specifically related to 

the type and kind of experiences defined in Forest Plan standards and 

guidelines. The Forest Service relies on outfitter/guides to help address the 

needs of an increasingly urban population which may lack the necessary ability, 

skills, or equipment for travel, and the knowledge to experience a safe recreation 

experience in southeast Alaska. 

Wilde mess Needs Assessments 

The Tongass National Forest Plan was recently amended. In conjunction with 

that amendment process, a document, Determination of Need for and Extent of 

Commercial Uses Within Wilderness Areas on the Tongass National Forest 

(USDA Forest Service, 2007), was developed. For the purposes of the KMRD 

needs assessment, the information contained in the document as it relates to the 

MFNMW has been incorporated into this district-wide needs assessment. 

Commercial activities identified in the Tongass National Forest needs 

assessment that take place in the MFNMW include: 

• black bear hunting 

• brown bear hunting 

• mountain goat hunting 

• camping 

• freshwater fishing 

• flightseeing landing tours 

• outfitting 

• remote setting nature tours 

• transporting. 

4 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

• Market forces that affect certain sectors of the tourism business 

In 2005, there were 47 outfitter/guides using the KMRD with approximately onethird of the outfitter/guides using MFNMW. Outfitter/guides brought 

approximately 25,000 clients to the district, of which 9,000 visited MFNMW (2005 

data, outfitter/guide database). 

The Forest Service issues outfitter/guide permits in order to respond to a 

--- -----ma:mrgementneed-toprovide-high-quality-publicservices-and-assistance-to--------------------

vIsitors ana to meetTongass i\Jatlonal Forest lJlanagemenlClQJectlves.________ 

Outfitter/guide permittees exist because the Forest Service desires their 

assistance in accomplishing management goals and objectives. 

Outfitter/guides help the Forest Service provide services to the public, protect 

public health and safety, and attain management objectives specifically related to 

the type and kind of experiences defined in Forest Plan standards and 

guidelines. The Forest Service relies on outfitter/guides to help address the 

needs of an increasingly urban population which may lack the necessary ability, 

skills, or equipment for travel, and the knowledge to experience a safe recreation 

experience in southeast Alaska. 

Wilde mess Needs Assessments 

The Tongass National Forest Plan was recently amended. In conjunction with 

that amendment process, a document, Determination of Need for and Extent of 

Commercial Uses Within Wilderness Areas on the Tongass National Forest 

(USDA Forest Service, 2007), was developed. For the purposes of the KMRD 

needs assessment, the information contained in the document as it relates to the 

MFNMW has been incorporated into this district-wide needs assessment. 

Commercial activities identified in the Tongass National Forest needs 

assessment that take place in the MFNMW include: 

• black bear hunting 

• brown bear hunting 

• mountain goat hunting 

• camping 

• freshwater fishing 

• flightseeing landing tours 

• outfitting 

• remote setting nature tours 

• transporting. 

4 
These same activities occur in the non-wilderness portions of KMRD. In addition, 

activities such as wildlife viewing at developed areas (Fish Creek, Margaret 

Creek), and road-based nature tours occur in the non-wilderness. 

Tongass National Forest Wilderness Use 

Outfitter/guide use on MFNMW should also be considered in context with the use 

on other wilderness areas of the Tongass National Forest. "Recognizing the 

·~-··~--··~·~··'nTche'·e.achwildernessafea·j;lr6\lidesfothe·FofesrWi![neJfJtlistricnah·gers·ih···· ... ~~~:.:=·:::-

·.·.· .. _.....making·.a.decision·to.maintain·tJ:Je.cJ:Jaracter·or-values·of·tJ:Jat·wildemess.-T-J:Je .. 

purpose of the niche statement is to present a picture of how each wilderness fits 

into the collective of wilderness areas on the forest. (USDA Forest Service 2007)" 

An excerpt from the niche statement includes: 

This area is characterized primarily by a variety of deep, narrow and steep 

walled fiords that cut into these massive landforms. Prominent on the steep 

slopes rising from these waterways are sheer rock cliffs that take many 

different forms (USDA Forest Service 2007). 

One of the goals as expressed in the 1978 Presidential Proclamation for 

management of MFNMW is: 

[PJreserving a unique ecosystem and the remarkable geologic and biological 

objects and features it contains. The goal of preservation was to ensure 

continued opportunities for study of Misty Fiord's geology and ecology, 

including the complete range of coastal to interior climates and ecosystems. 

Protection and study of the geology, plant, and animal succession, historical 

resources, and fish and wildlife resources are specifically directed (USDA 

Forest Service 2008). 

Even with a demonstrated public need, not all wilderness areas are required to 

provide outfitter/guide services and not all wilderness areas will provide the same 

kind of services. Appendix A shows the use by fee activity for the wilderness 

areas on the Tongass National Forest. 

MFNMW has outfitter/guides offering several types of visitor. services. 

Flightseeing landing tours are by far the most common type of service in 

MFNMW, and these tours represent approximately 99 percent of all flightseeing 

landing tours on the Tongass National Forest. Flightseeing tours also represent 

approximately 94 percent of the use in MFNMW. The niche for MFNMW 

includes flightseeing landing tours as a way for visitors to experience the remote 

geological and biological features found in the wilderness. 

Black bear hunting in MFNMW represents 26 percent of the Tongass National 

Forest wilderness use. None of the other fee activities in MNFMW represent 

more than five percent of the Tongass National Forest wilderness use. 

5 

__________________________________________________________ Draft Environmental Impact Statement

These same activities occur in the non-wilderness portions of KMRD. In addition, 

activities such as wildlife viewing at developed areas (Fish Creek, Margaret 

Creek), and road-based nature tours occur in the non-wilderness. 

Tongass National Forest Wilderness Use 

Outfitter/guide use on MFNMW should also be considered in context with the use 

on other wilderness areas of the Tongass National Forest. "Recognizing the 

·~-··~--··~·~··'nTche'·e.achwildernessafea·j;lr6\lidesfothe·FofesrWi![neJfJtlistricnah·gers·ih···· ... ~~~:.:=·:::-

·.·.· .. _.....making·.a.decision·to.maintain·tJ:Je.cJ:Jaracter·or-values·of·tJ:Jat·wildemess.-T-J:Je .. 

purpose of the niche statement is to present a picture of how each wilderness fits 

into the collective of wilderness areas on the forest. (USDA Forest Service 2007)" 

An excerpt from the niche statement includes: 

This area is characterized primarily by a variety of deep, narrow and steep 

walled fiords that cut into these massive landforms. Prominent on the steep 

slopes rising from these waterways are sheer rock cliffs that take many 

different forms (USDA Forest Service 2007). 

One of the goals as expressed in the 1978 Presidential Proclamation for 

management of MFNMW is: 

[PJreserving a unique ecosystem and the remarkable geologic and biological 

objects and features it contains. The goal of preservation was to ensure 

continued opportunities for study of Misty Fiord's geology and ecology, 

including the complete range of coastal to interior climates and ecosystems. 

Protection and study of the geology, plant, and animal succession, historical 

resources, and fish and wildlife resources are specifically directed (USDA 

Forest Service 2008). 

Even with a demonstrated public need, not all wilderness areas are required to 

provide outfitter/guide services and not all wilderness areas will provide the same 

kind of services. Appendix A shows the use by fee activity for the wilderness 

areas on the Tongass National Forest. 

MFNMW has outfitter/guides offering several types of visitor. services. 

Flightseeing landing tours are by far the most common type of service in 

MFNMW, and these tours represent approximately 99 percent of all flightseeing 

landing tours on the Tongass National Forest. Flightseeing tours also represent 

approximately 94 percent of the use in MFNMW. The niche for MFNMW 

includes flightseeing landing tours as a way for visitors to experience the remote 

geological and biological features found in the wilderness. 

Black bear hunting in MFNMW represents 26 percent of the Tongass National 

Forest wilderness use. None of the other fee activities in MNFMW represent 

more than five percent of the Tongass National Forest wilderness use. 

5 
Assumptions 

The following assumptions are made to aid in the assessment of the need for 

outfitter/guide operations: 

• Overall visitor use, particularly cruise ship visitors, is expected to remain at 

----"---~ "---"~--""-COTrenrlevels-orC"dntinue-to"increase-eftRMI""AmendmenrRecord-of-----"--"-----""--"-~ 

"" ____ ~__ Decision20b8). There ma~ also be shifts in use Rattems (tlmlng-"a'-Cn""a'--__ ~ 

location) and user types (hikers, kayakers, day users, etc.). 

• Some people would not experience the National Forest without an outfitter 

/guide because they lack the skills, knowledge or ability to do so on their 

own. 

• There will be a continued and increased demand for special use permits to 

conduct outfitter/guide operations on KMRD. 

• Conflicts between outfitter/guide operations and the general public have the 

potential to increase if overall use increases. 

Absence of use or demand by the general public is not, in itself, a justification to 

authorize outfitter/guide operations. 

Needs Assessment Data 

Data from different sources are used to display the outfitter/guide use in this 

needs assessment. Whenever available, the most current information is used. 

In some cases, such as actual use at locations in the outfitter/guide database, 

the data typically lags approximately 1-2 years behind the year an outfitter/guide 

is authorized because of the volume of data entry. Where trend information is 

necessary because weather may influence use in a given year (e.g. floatplane 

landing tours), 2-3 years of data is displayed to balance the uncertainty of 

weather and its effect on use. The data sources used include: 

• Special use permits, which authorize outfitter/guide activities on National 

Forest System lands. These permits typically authorize the type of 

permitted activities, amount of use permitted, and in some cases, the 

locations permitted (e.g. Margaret Creek, Fish Creek). 

• As part of the special use permit, outfitter/guides are required to provide 

actual use reports showing where they operated, the number of clients 

using National Forest System lands, and other related information. 

6 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Assumptions 

The following assumptions are made to aid in the assessment of the need for 

outfitter/guide operations: 

• Overall visitor use, particularly cruise ship visitors, is expected to remain at 

----"---~ "---"~--""-COTrenrlevels-orC"dntinue-to"increase-eftRMI""AmendmenrRecord-ot-----"--"-----""--"-~ 

"" ____ ~__ Decision20b8). There ma~ also be shifts in use Ratterns (timing and """ 

location) and user types (hikers, kayakers, day users, etc.). 

• Some people would not experience the National Forest without an outfitter 

/guide because they lack the skills, knowledge or ability to do so on their 

own. 

• There will be a continued and increased demand for special use permits to 

conduct outfitter/guide operations on KMRD. 

• Conflicts between outfitter/guide operations and the general public have the 

potential to increase if overall use increases. 

Absence of use or demand by the general public is not, in itself, a justification to 

authorize outfitter/guide operations. 

Needs Assessment Data 

Data from different sources are used to display the outfitter/guide use in this 

needs assessment. Whenever available, the most current information is used. 

In some cases, such as actual use at locations in the outfitter/guide database, 

the data typically lags approximately 1-2 years behind the year an outfitter/guide 

is authorized because of the volume of data entry. Where trend information is 

necessary because weather may influence use in a given year (e.g. floatplane 

landing tours), 2-3 years of data is displayed to balance the uncertainty of 

weather and its effect on use. The data sources used include: 

• Special use permits, which authorize outfitter/guide activities on National 

Forest System lands. These permits typically authorize the type of 

permitted activities, amount of use permitted, and in some cases, the 

locations permitted (e.g. Margaret Creek, Fish Creek). 

• As part of the special use permit, outfitter/guides are required to provide 

actual use reports showing where they operated, the number of clients 

using National Forest System lands, and other related information. 

6 
• The Tongass National Forest Outfitter/Guide Use database. This 

database relies on information that is provided by the outfitter/guides at 

the end of each operating season. The database currently has data from 

2004 through 2005. 

• The Alaska Department of Fish and Game (ADF&G) harvest records. 

A review of authorized and actual use occurring on KMRD indicates that less · ... ~------·--ti:Jar:l~oQ-e::-RercentTsTrom::-oLifllfferZguiae::~its]ssued6~-otner-arStrias:--An---···-----··-····-···--·· 

····--estimated-200-service-days-for-activities-·stlch-as-hunting;-fishing,-and-remote-·················· 

setting nature tours, are from permits issued by Forest Service staff on the Craig, 

Wrangell, Sitka, and Petersburg Ranger Districts. The Thorne Bay Ranger 

District did not authorize any use on KMRD in 2007. As a result, and for the 

purpose of this needs assessment, only data from outfitter/guide permits issued 

by KMRD is included unless otherwise noted. 

Evaluation Process to Determine Need 

On KMRD Wilderness and Non-Wilderness Lands 

A review of past and current outfitter/guide use, as well as the potential for 

additional use, was used as a foundation for this needs assessment. Based on 

past and potential future use, the following activities were considered in the 

needs assessment: 

Outfitter/Guide Activity 

Brown bear huntin~ 

Mountain goat huntin~ 

Black bear hunting 

Deer hunting 

Floatplane landing tours (lake landin~s, shore excursions) 

Freshwater fishing 

Remote settin~ nature tours (hikin~, kayakin~, si~htseein~) 

Wildlife viewin~ at developed sites 

Carnpin~ 

Road-based nature tours 

Institutional (reli~ious, fraternal, youth, educational groups) 

7 

__________________________________________________________ Draft Environmental Impact Statement

• The Tongass National Forest Outfitter/Guide Use database. This 

database relies on information that is provided by the outfitter/guides at 

the end of each operating season. The database currently has data from 

2004 through 2005. 

• The Alaska Department of Fish and Game (ADF&G) harvest records. 

A review of authorized and actual use occurring on KMRD indicates that less 

· ... ~------·--ti:Jar:l~oQ-e::-RercentTsTrom::-oLifllfferZguiae::~its·lssued6~-otneTdrStrias:--An---·-----·--·--·· 

···--estimated-200-service-days--for-activities-"stlch-as-hunting;-fishing,-and-remote-················· 

setting nature tours, are from permits issued by Forest Service staff on the Craig, 

Wrangell, Sitka, and Petersburg Ranger Districts. The Thorne Bay Ranger 

District did not authorize any use on KMRD in 2007. As a result, and for the 

purpose of this needs assessment, only data from outfitter/guide permits issued 

by KMRD is included unless otherwise noted. 

Evaluation Process to Determine Need 

On KMRD Wilderness and Non-Wilderness Lands 

A review of past and current outfitter/guide use, as well as the potential for 

additional use, was used as a foundation for this needs assessment. Based on 

past and potential future use, the following activities were considered in the 

needs assessment: 

Outfitter/Guide Activity 

Brown bear hunting 

Mountain goat hunting 

Black bear hunting 

Deer hunting 

Floatplane landing tours (lake landings, shore excursions) 

Freshwater fishing 

Remote setting nature tours (hiking, kayaking, sightseeinq) 

Wildlife viewing at developed sites 

Camping 

Road-based nature tours 

Institutional (religious, fraternal, youth, educational groups) 

7 
The key criteria used to analyze the public need are: 

Criterion Definition 

Skills needed to Outfitter/guide skills are needed by the public because: 1) specific 

accommodate skills required for activities appropriate for the area require 

users substantial time and/or talent to learn; and 2) the skills required are 

.. ·:so.unigLIEllhaloutfitterlguiaeassistancsisa]mosCa: Rrereg-uisits-iT 

'"C'~_'_~'"" ---.~- ... --,.. -- tb.e...pu blic is..to..bave_any.oppoctunity.io..pacticipateJn.tbe.acth,dty. ..... ._-_ .. -._- -.- -

Access Due to distances, the weather, terrain, and type of recreational 

opportunities pursued on the district, outfitting and guiding services 

are often needed to provide safe access for the general public. 

Unguided access is also limited by the need to acquire, maintain, 

and operate expensive, specialized eauipment (e.a. boat, aircraft), 

Safety Special skills are needed to assure a reasonable level of safety for 

the participants. Without outfitter/guide assistance; the public 

could seriously endanger their health or lives or would not visit the 

area due to safety concerns. This could apply to people who use 

outfitter/guide services the first time and then visit again on their 

own, or it could apply to an activity such as sea kayaking where 

hazards exist for those who are inexperienced and ill-equipped. 

For those outfitter/guides operating in wilderness, this criterion is 

not meant to diminish the wilderness values of self-reliance or the 

opportunity to challen~e oneself or experience risk. 

Special Outfitter/guides help the Forest Service meet special management 

management objectives to: 1) Provide opportunities for special populations, 

objectives which include disabled, minorities, and the elderly, to access 

certain areas and to participate in recreational and educational 

activities, 2) Provide opportunities for public use, enjoyment, and 

understanding of the wilderness, through experiences that depend 

upon a wilderness setting and are consistent with management of 

the area as wilderness, 3) Manage for·sustainable fish and wildlife 

populations in cooperation with Alaska Department of Fish and 

Game. 

Dependence on The extent to which the proposed service can not be offered on 

wilderness for the private lands, non-wildererness national forest lands, or other 

activity public lands. Some examples of dependence could be: 1) trips in 

which solitude or unconfined, primitive recreation are the central 

components of the experience; and 2) visits to ecosystems, 

geological features, or physical resources are found predominantly 

in wilderness. 

Resource effects Resource effects can consist of impacts to biophysical resources 

(biophysical and (e.g. air quality, water quality, wildlife) and/or social/experiential 

social/experiential) conditions (e.g. opportunities for visitors to experience solitude, 

and natural siqhts and sounds). 

8 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

The key criteria used to analyze the public need are: 

Criterion Definition 

Skills needed to Outfitter/guide skills are needed by the public because: 1) specific 

accommodate skills required for activities appropriate for the area require 

users substantial time and/or talent to learn; and 2) the skills required are 

.. ·:so.unigLIEllhaloutfitterlguiaeassistancsisa]mosCa: Rrereg-uisitS-iT 

"C'~_'_~'"" ---.~- ... --,.. -- tb.e...public is..to..bave_any.oppodunity.l0 .. padicipateJn..tb.e.acth,dty. ...... . ___ .. _. __ -.- -

Access Due to distances, the weather, terrain, and type of recreational 

opportunities pursued on the district, outfitting and guiding services 

are often needed to provide safe access for the general public. 

Unguided access is also limited by the need to acquire, maintain, 

and operate expensive, specialized equipment (e.g. boat, aircraft). 

Safety Special skills are needed to assure a reasonable level of safety for 

the participants. Without outfitter/guide assistance; the public 

could seriously endanger their health or lives or would not visit the 

area due to safety concerns. This could apply to people who use 

outfitter/guide services the first time and then visit again on their 

own, or it could apply to an activity such as sea kayaking where 

hazards exist for those who are inexperienced and ill-equipped. 

For those outfitter/guides operating in wilderness, this criterion is 

not meant to diminish the wilderness values of self-reliance or the 

opportunity to challenqe oneself or experience risk. 

Special Outfitter/guides help the Forest Service meet special management 

management objectives to: 1) Provide opportunities for special populations, 

objectives which include disabled, minorities, and the elderly, to access 

certain areas and to participate in recreational and educational 

activities, 2) Provide opportunities for public use, enjoyment, and 

understanding of the wilderness, through experiences that depend 

upon a wilderness setting and are consistent with management of 

the area as wilderness, 3) Manage for·sustainable fish and wildlife 

populations in cooperation with Alaska Department of Fish and 

Game. 

Dependence on The extent to which the proposed service can not be offered on 

wilderness for the private lands, non-wildererness national forest lands, or other 

activity public lands. Some examples of dependence could be: 1) trips in 

which solitude or unconfined, primitive recreation are the central 

components of the experience; and 2) visits to ecosystems, 

geological features, or physical resources are found predominantly 

in wilderness. 

Resource effects Resource effects can consist of impacts to biophysical resources 

(biophysical and (e.g. air quality, water quality, wildlife) and/or social/experiential 

social/experiential) conditions (e.g. opportunities for visitors to experience solitude, 

and natural siqhts and sounds). 

8 
~,~-""'--""----

--.. --"~ 

----- - -,."-----

Three potential criteria were considered, and while they are important, they were 

not included in this needs assessment. This is because they either applied to all 

the activities or did not focus on aspects of the Forest Service's mission to 

manage and protect resources, provide for public safety, and provide high-quality 

public recreation services 

- GritElrion n-orln-c1uded - . .- - Reas-on- ----- -,---"-"---"---"--,-"-----,,~ 

----------- ------- ----- ---

6ducation-and .. lrlterpretatiorl ... - .Outfitters.arld.guidss-provide-educatiorlal--- _.---,.-

and interpretive information to their clients 

in a way that promotes responsible use of 

natural and cultural resources and 

enriches public appreciation of the area. 

Outfitters and guides can also playa role 

in building a constituency for public lands 

and their stewardship. 

Economic viability Business viability will be considered after 

the needs assessment is completed. The 

Forest Service has an interest in 

maintaining the viability of existing 

outfitter/guide businesses prior to new 

businesses being authorized. Economic 

viability is best addressed in visitor 

capacity and allocation discussions. 

Contribution to the local While important, economic diversification 

economy and strengthening of local economies do 

not focus on the general public or their use 

of the resource, and ability to safely 

access the resource. 

Because the NFS land of KMRD consists of approximately one-third of nonwilderness and two-thirds in wilderness, an additional level of needs assessment 

for activities within wilderness was done. The prirnary considerations for 

determining suitability for an activity in wilderness were consistency with the 

public purposes of the Wilderness Act, the need to preserve the wilderness 

character of the area, and if the type of use was dependent on the MFNMW 

setting. 

As new perrnittees are authorized or existing permits expire, the operating plan 

for each outfitter/guide that operates in wilderness should clearly describe why 

they need to operate in wilderness and the type of wilderness-oriented 

inforrnation they are sharing with their clients (e.g. Leave No Trace skills, geology 

of the area, etc.) prior to their approval. 

9 

" ... _" -~-"--,,--"'" 

__________________________________________________________ Draft Environmental Impact Statement

~,~-""'--""----

--.. --"~ 

----- - -,."-----

Three potential criteria were considered, and while they are important, they were 

not included in this needs assessment. This is because they either applied to all 

the activities or did not focus on aspects of the Forest Service's mission to 

manage and protect resources, provide for public safety, and provide high-quality 

public recreation services 

- GritElriol1 notlncluded - - -- - Reas-on- - ---

6;ducafion-and--Ir:iterpretation---- -Outfitters-and-guidss-provide-educational--- _.---,.-

and interpretive information to their clients 

in a way that promotes responsible use of 

natural and cultural resources and 

enriches public appreciation of the area. 

Outfitters and guides can also playa role 

in building a constituency for public lands 

and their stewardship. 

Economic viability Business viability will be considered after 

the needs assessment is completed. The 

Forest Service has an interest in 

maintaining the viability of existing 

outfitter/guide businesses prior to new 

businesses being authorized. Economic 

viability is best addressed in visitor 

capacity and allocation discussions. 

Contribution to the local While important, economic diversification 

economy and strengthening of local economies do 

not focus on the general public or their use 

of the resource, and ability to safely 

access the resource. 

Because the NFS land of KMRD consists of approximately one-third of nonwilderness and two-thirds in wilderness, an additional level of needs assessment 

for activities within wilderness was done. The prirnary considerations for 

determining suitability for an activity in wilderness were consistency with the 

public purposes of the Wilderness Act, the need to preserve the wilderness 

character of the area, and if the type of use was dependent on the MFNMW 

setting. 

As new perrnittees are authorized or existing permits expire, the operating plan 

for each outfitter/guide that operates in wilderness should clearly describe why 

they need to operate in wilderness and the type of wilderness-oriented 

inforrnation they are sharing with their clients (e.g. Leave No Trace skills, geology 

of the area, etc.) prior to their approval. 

9 

" ... _" -~-"--,,--"'" 
Public Purposes of the Wilderness Act 

.. Secbon 4@ of the VVilderness Act Identities the p-ublic p-urposes for whlch _______ ... _ .. 

wilderness areas are to be devoted and outfitter/guide services rnust be 

consistent with these purposes. The purposes are: 

Recreational: A wide variety of cornrnercial outfitter/guide activities occur in 

MFNMW and provide opportunties for visitors to recreate. 

Scenic: The wilderness is renowned for its geological features and high scenic 

values. Visitors that corne to the wilderness area are attracted by the massive 

granite walls and glacial fiords. 

Scientific: Various scientific studies have been conducted in MFNMW in the past 

and there is the likelihood that additional research will be conducted in the future. 

Outfitter/guides have not played a large role in the studies and most likely would 

not in the future because transportation is usually provided by air or boat charters 

and the researchers' skill and experience level would, in most cases, preclude 

the necessity of an outfitter/guide. 

Educational: Outfitter/guides possess local knowledge about the area that they 

pass on to their clients while unguided parties would not receive this benefit. 

Conservation: To date, outfitter/guides have not actively engaged in activities 

such as trail maintenance or campsite restoration. Outfitter/guides have 

expressed an interest in helping the Forest Service maintain remote public 

recreation cabins used by their clients. 

Historical: Outfitter/guides that are familiar with MFNMW's rich prehistoric and 

historic past can provide information that many members of the general public 

would not normally be exposed to. 

Wilderness Character 

The Wilderness Act of 1964 directs "each agency administering any area 

designated as wilderness shall be responsible for preserving the wildemess 

character of the area." Section 2(c) of the Act defines four qualities of wilderness 

that managers try to preserve. 

10 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Public Purposes of the Wilderness Act I~----"-----~------"--"~--"----""-·"--~--····~--··--·" ."~------"--.---"--.-"-.--".---~~ .. -.-~ .. --

".Seclion 4@ of the VVilderness Act Identities the p-ublic ~oses for whlch ______ """_"" 

wilderness areas are to be devoted and outfitter/guide services rnust be 

consistent with these purposes. The purposes are: 

Recreational: A wide variety of cornrnercial outfitter/guide activities occur in 

MFNMW and provide opportunties for visitors to recreate. 

Scenic: The wilderness is renowned for its geological features and high scenic 

values. Visitors that corne to the wilderness area are attracted by the massive 

granite walls and glacial fiords. 

Scientific: Various scientific studies have been conducted in MFNMW in the past 

and there is the likelihood that additional research will be conducted in the future. 

Outfitter/guides have not played a large role in the studies and most likely would 

not in the future because transportation is usually provided by air or boat charters 

and the researchers' skill and experience level would, in most cases, preclude 

the necessity of an outfitter/guide. 

Educational: Outfitter/guides possess local knowledge about the area that they 

pass on to their clients while unguided parties would not receive this benefit. 

Conservation: To date, outfitter/guides have not actively engaged in activities 

such as trail maintenance or campsite restoration. Outfitter/guides have 

expressed an interest in helping the Forest Service maintain remote public 

recreation cabins used by their clients. 

Historical: Outfitter/guides that are familiar with MFNMW's rich prehistoric and 

historic past can provide information that many members of the general public 

would not normally be exposed to. 

Wilderness Character 

The Wilderness Act of 1964 directs "each agency administering any area 

designated as wilderness shall be responsible for preserving the wilderness 

character of the area." Section 2(c) of the Act defines four qualities of wilderness 

that rnanagers try to preserve. 

10 
Untrammeled - The wilderness is essentially unhindered and free from modern 

human control or manipulation. This quality describes the degree to which 

management actions "hinder" or "control" the land and natural processes. For 

example, the wilderness area has remained free of management activities that 

have altered natural systems, such as dams or regulations that govern visitor 

activities . 

. .... ---.---NatTlfar::-WilEletFfeSseGiJlogicalaneJevolutionaIy. systems arfF!5uj:Jstantia!jj[free-----·.···-.--

.from-the.effects-of-modem.civilization •.. :r:his-quality.describes-the.ecological--.-

effects of management actions that manipulate vegetation, soils, air quality or 

other physical and biological components of wilderness. In the past, minor beach 

logging has taken place on the KMRD and has been limited to single trees or 

very small stands. There have also been old, larger scale timber harvest areas 

in localized portions of MFNMW. Botanical surveys have detected invasive 

plants. Historically, non-native fish have been introduced to several lakes and 

there is currently a coho salmon re-colonization project occurring. Otherwise, 

populations of fish and wildlife and other natural systems are largely unaffected 

by past human activity. 

Undeveloped - Wilderness has minimal evidence of modern human occupation 

or modification. This quality describes the effects of structures, habitations, or 

other evidence of human presence or occupation. There are 10 trails 

(approximately 18 miles), 13 public recreation cabins, nine mooring buoys, and 

five shelters present in the wilderness. The Forest Service and other agencies 

maintain several administrative facilities and the Forest Service has issued 

special use permits for cabins. There are also signs of past human use such as 

historic canneries, cabins, and roads. 

Outstanding opportunities for solitude or a primitive and unconfined type 

of recreation -Wilderness provides outstanding opportunities for people to 

experience natural sights and sounds, solitude, freedom, risk, and the physical 

and emotional challenges of self·discovery and self-reliance. The majority of the 

wilderness area provides these types of opportunities. There are shoreline areas 

and lakes in the core area of MFNMW where these opportunities are diminished 

due to the sights and sounds from motorboats and aircraft (Gimblett 2005). 

Issues 

Much of MFNMW remains as it has always been--a remote, difficult to access 

area, whose wilderness character is largely intact. Despite this, there are areas 

of concern and they include: 

Social: 

11 

__________________________________________________________ Draft Environmental Impact Statement

Untrammeled - The wilderness is essentially unhindered and free from modern 

human control or manipulation. This quality describes the degree to which 

management actions "hinder" or "control" the land and natural processes. For 

example, the wilderness area has remained free of management activities that 

have altered natural systems, such as dams or regulations that govern visitor 

activities. . 

. --------_-. NatTlfal-::-WilEletFfeSseGiJlogicalaneJevolutionaIy. systems arfi75ujJstantia!jjl]ree--------------

... --.. --.··Jrom-the-effects-of-modem.civilization •. -T:his-quality-describes-the-ecological---- . 

effects of management actions that manipulate vegetation, soils, air quality or 

other physical and biological components of wilderness. In the past, minor beach 

logging has taken place on the KMRD and has been limited to single trees or 

very small stands. There have also been old, larger scale timber harvest areas 

in localized portions of MFNMW. Botanical surveys have detected invasive 

plants. Historically, non-native fish have been introduced to several lakes and 

there is currently a coho salmon re-colonization project occurring. Otherwise, 

populations of fish and wildlife and other natural systems are largely unaffected 

by past human activity. 

Undeveloped - Wilderness has minimal evidence of modern human occupation 

or modification. This quality describes the effects of structures, habitations, or 

other evidence of human presence or occupation. There are 10 trails 

(approximately 18 miles), 13 public recreation cabins, nine mooring buoys, and 

five shelters present in the wilderness. The Forest Service and other agencies 

maintain several administrative facilities and the Forest Service has issued 

special use permits for cabins. There are also signs of past human use such as 

historic canneries, cabins, and roads. 

Outstanding opportunities for solitude or a primitive and unconfined type 

of recreation -Wilderness provides outstanding opportunities for people to 

experience natural sights and sounds, solitude, freedom, risk, and the physical 

and emotional challenges of self·discovery and self-reliance. The majority of the 

wildemess area provides these types of opportunities. There are shoreline areas 

and lakes in the core area of MFNMW where these opportunities are diminished 

due to the sights and sounds from motorboats and aircraft (Gimblett 2005). 

Issues 

Much of MFNMW remains as it has always been--a remote, difficult to access 

area, whose wilderness character is largely intact. Despite this, there are areas 

of concern and they include: 

Social: 

11 
Overall motorized use: There are some areas where concerns exist about sights 

and sounds of motorized equipment. While some activities occur in the air and 

on saltwater, and are outside of Forest Service jurisdiction, other activities such 

as flightseeing landing tours on lakes are authorized by the Forest Service. The 

noise and visual effects from all these activities do have an impact on the 

wilderness character quality of outstanding opportunities for solitude or a 

primitive and unconfined type of recreation . 

.... _ ... _umLe.L1b~ Forest Service's jurisdiction. Tnese landings and the number of ... __ ...... __ .... . 

encounters at lakes have an effect on solitude at Forest Service recreation 

cabins, shelters, and other lake use. The Alaska National Interest Lands 

Conservation Act (ANILCA) allows these motorized uses, but does not discuss 

their use for commercial purposes, nor does it address levels of motorized use 

Section 707 of ANILCA states that "except as otherwise expressly provided for in 

this Act wilderness designated by this Act shall be administered in accordance 

with applicable provisions of the Wilderness Act. .. " Ultimately, any use must 

leave the wilderness resource unimpaired for future use and preserve the 

wilderness character. 

Saltwater Encounters: A great deal of travel to Misty Fiords is on saltwater. 

Boats of all sizes, ranging from skiffs to cruise ships, ply the waters adjacent to 

the wilderness area. Many boats are heard and seen at a distance, but others 

can occur relatively close to the shoreline so that they create a de facto 

"encounter" with people that are ashore. These encounters can occur in the form 

of a boat cruising close to shore and people waving to one another, or anchoring 

in a small cove with the boat generator running. 

Bio/Physical Resources: Use at most locations from visitors camping or 

partiCipating in remote setting nature tours is generally low and has resulted in 

few, if any, resource concerns. There are some locations (e.g. the campsite at 

Punchbowl Cove) where impacts to vegetation and soil are more noticeable. The 

potential introduction of invasive species is an additional concern. 

12 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Overall motorized use: There are some areas where concerns exist about sights 

and sounds of motorized equipment. While some activities occur in the air and 

on saltwater, and are outside of Forest Service jurisdiction, other activities such 

as flightseeing landing tours on lakes are authorized by the Forest Service. The 

noise and visual effects from all these activities do have an impact on the 

wilderness character quality of outstanding opportunities for solitude or a 

primitive and unconfined type of recreation. 

1-~~----~---~ca:Ke~tanaings:Floatplanenan-dih~gs-on-la:kes-an-d~sh-oreline-excursions-;--are-----~----------

_____ ._._umLesjb~ Forest Service's jurisdiction. Tnese landings and the number of ____ ~ _____ ~_~_ 

encounters at lakes have an effect on solitude at Forest Service recreation 

cabins, shelters, and other lake use. The Alaska National Interest Lands 

Conservation Act (ANILCA) allows these motorized uses, but does not discuss 

their use for commercial purposes, nor does it address levels of motorized use 

Section 707 of ANILCA states that "except as otherwise expressly provided for in 

this Act wilderness designated by this Act shall be administered in accordance 

with applicable provisions of the Wilderness Act. .. " Ultimately, any use must 

leave the wilderness resource unimpaired for future use and preserve the 

wilderness character. 

Saltwater Encounters: A great deal of travel to Misty Fiords is on saltwater. 

Boats of all sizes, ranging from skiffs to cruise ships, ply the waters adjacent to 

the wilderness area. Many boats are heard and seen at a distance, but others 

can occur relatively close to the shoreline so that they create a de facto 

"encounter" with people that are ashore. These encounters can occur in the form 

of a boat cruising close to shore and people waving to one another, or anchoring 

in a small cove with the boat generator running. 

Bio/Physical Resources: Use at most locations from visitors camping or 

partiCipating in remote setting nature tours is generally low and has resulted in 

few, if any, resource concerns. There are some locations (e.g. the campsite at 

Punchbowl Cove) where impacts to vegetation and soil are more noticeable. The 

potential introduction of invasive species is an additional concern. 

12 
Outfitter/Guide Activity Evaluations 

Brown Bear Hunting 

There are currently four outfitter/guides with Forest Service special use permits 

to hunt brown bear on KMRD and they are authorized a total of 11 hunts. 

·Special-skills-needed;-l=he-Stateof . .Alaska.requires.non·resident-hunterstobe--., .. , 

accompanied by a registered guide or a relative within the second degree of kin. 

The knowledge and skills required to identify males and care for an animal 

carcass in accordance with State law are all beyond the average person's 

abilities. 

Access: Most brown bear hunters (average of 70 percent) use boats to access 

remote, mostly roadless hunting areas. Accessing MFNMW, where a majority of 

brown bear hunting occurs on the district, requires a long boat ride across 

relatively exposed waterways. Highway vehicles, aircraft, and off-highway 

vehicles are used outside of MFNMW, but not frequently. 

Safety: Successful brown bear hunters spend an average of 4.3 days traveling in 

remote locations characterized by rough terrain and adverse weather conditions. 

Wildlife encounters also pose a risk to safety, particularly if a bear is wounded or 

charges during the hunt. 

Wilde mess dependence: MFNMW contains large tracts of quality bear habitat. In 

2004-2005, five out of the six locations where brown bear hunters camped were 

in wilde mess. In addition, nine out of 14 locations where boat-based brown bear 

hunting took place were in wildemess. In contrast, according to ADF&G reports, 

only two brown bears have been harvested on Revilla Island during the past 20 

years. 

Resource effects: Since most of the brown bear hunting is boat-based, there are 

minimal impacts to vegetation, soil, and water resources. ADF&G provides 

recommendations, population estimates, and historical harvest data to help the 

Forest Service determine the number of guided brown bear hunts an area can 

sustain. The number of successful brown bear hunters, particularly guided 

nonresidents, has increased in recent years, raising concems about sustainable 

harvest levels. ADF&G has determined that the current level of harvest for 

residents and nonresidents in GMU-1 A is at the harvest level guidelines 1 for 

1 Harvest level guidelines are developed for each species based on information such 

as desired sex ratios, estimated population numbers and causes of mortality 

(human-caused and natural), habitat changes, and other factors. These guidelines 

are developed to promote a sustainable population while also providing as much 

hunter opportunity as possible. 

13 

__________________________________________________________ Draft Environmental Impact Statement

Outfitter/Guide Activity Evaluations 

Brown Bear Hunting 

There are currently four outfitter/guides with Forest Service special use permits 

to hunt brown bear on KMRD and they are authorized a total of 11 hunts. 

·Special-skills-needed;-l=he-Stateof . .Alaska.requires.non·resident-hunterstobe--- ., .. , 

accompanied by a registered guide or a relative within the second degree of kin. 

The knowledge and skills required to identify males and care for an animal 

carcass in accordance with State law are all beyond the average person's 

abilities. 

Access: Most brown bear hunters (average of 70 percent) use boats to access 

remote, mostly roadless hunting areas. Accessing MFNMW, where a majority of 

brown bear hunting occurs on the district, requires a long boat ride across 

relatively exposed waterways. Highway vehicles, aircraft, and off-highway 

vehicles are used outside of MFNMW, but not frequently. 

Safety: Successful brown bear hunters spend an average of 4.3 days traveling in 

remote locations characterized by rough terrain and adverse weather conditions. 

Wildlife encounters also pose a risk to safety, particularly if a bear is wounded or 

charges during the hunt. 

Wilderness dependence: MFNMW contains large tracts of quality bear habitat. In 

2004-2005, five out of the six locations where brown bear hunters camped were 

in wilde mess. In addition, nine out of 14 locations where boat-based brown bear 

hunting took place were in wildemess. In contrast, according to ADF&G reports, 

only two brown bears have been harvested on Revilla Island during the past 20 

years. 

Resource effects: Since most of the brown bear hunting is boat-based, there are 

minimal impacts to vegetation, soil, and water resources. ADF&G provides 

recommendations, population estimates, and historical harvest data to help the 

Forest Service determine the number of guided brown bear hunts an area can 

sustain. The number of successful brown bear hunters, particularly guided 

nonresidents, has increased in recent years, raising concems about sustainable 

harvest levels. ADF&G has determined that the current level of harvest for 

residents and nonresidents in GMU-1 A is at the harvest level guidelines 1 for 

1 Harvest level guidelines are developed for each species based on information such 

as desired sex ratios, estimated population numbers and causes of mortality 

(human-caused and natural), habitat changes, and other factors. These guidelines 

are developed to promote a sustainable population while also providing as much 

hunter opportunity as possible. 

13 
Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________
Mountain Goat Hunting 

In 2007, there were four outfitter/guides with Forest Service special use permits 

to hunt goats and they were authorized a total of 20 hunts on KMRD. 

Specials skills needed: The State of Alaska requires non-resident goat hunters 

~---~~--~~--~to-beaccomrfanied-·l5ya.Tegistered~gUiae:-lnceQtlonoftmq~juidereguii1lmenfin~-------~-:­

- .~.--1.gg9-noticeably-reduced-nonresident-participation-in-goathuntingr·which-has---.. _ ..... 

since begun to rebound. The knowledge and skills required to care for an animal 

carcass in accordance with State law are beyond the average person's abilities. 

Access: Most goat hunters (average of 75 percent) use fixed-wing airplanes to 

access remote alpine lakes for hunting. The remaining hunters use boats. 

Access to MFNMW, where a majority of goat hunting occurs on the district, 

requires a float plane or long boat ride across relatively exposed waterways. 

Safety: Successful goat hunters spend an average of 3.4 days traveling in 

remote locations characterized by steep, rough terrain and adverse weather 

conditions. Footing is often slippery and the risk of falls is a concem. 

Wildemess dependence: Although goats historically inhabited only the mainland 

portion of the district, they now occur on Revilla Island as a result of introductions 

to Swan Lake and Upper Mahoney Lake (ADF&G 2004). Due to the success of 

these introductions, a hunting season opened on the eastem part of Revilla 

beginning in the fall of 1993 and a limited drawing hunt has opened for the 

Mahoney herd. However, poor access has resulted in a continued low harvest 

on Revilla Island. In 2001, ADF&G issued an emergency order that closed the 

Cleveland Peninsula for goat hunting due to concerns about low population 

counts and the isolation and fragmentation of the Peninsula's goat herd (ADF&G 

2002a). 

A majority of the guided and unguided goat hunts on the District take place in 

MFNMW (Table 2), and almost all of the guided groups use alpine lake areas for 

access and base camps. Access outside of the wilderness is limited by landable 

lakes and the costs associated with long-distance transports. The ability for 

hunters to disperse across the District to hunt goats is important because the 

quality of the hunt declines when more than one hunting party is on a lake at the 

same time. 

T a bl e 2. R eSI ·d ent an d non-resl ·d ent mountain goat h unts 

Wilderness Non-Wilderness 

Resident 30 13 

Non-resident 16 4 

Source: ADF&G harvest data (2004 - 2006) 

15 

__________________________________________________________ Draft Environmental Impact Statement

Mountain Goat Hunting 

In 2007, there were four outfitter/guides with Forest Service special use permits 

to hunt goats and they were authorized a total of 20 hunts on KMRD. 

Specials skills needed: The State of Alaska requires non-resident goat hunters 

~---~~--~~--~to-beaccomj'fanied-·l5ya.Tegistered~gUiae:-lnceQtlonoftmq~juidereguii1lmenfin~-------~-~ 

- o~o--1.gg9.noticeably-reduced-nonresident-participation.in.goathuntingrowhich-has--.... o 

since begun to rebound. The knowledge and skills required to care for an animal 

carcass in accordance with State law are beyond the average person's abilities. 

Access: Most goat hunters (average of 75 percent) use fixed-wing airplanes to 

access remote alpine lakes for hunting. The remaining hunters use boats. 

Access to MFNMW, where a majority of goat hunting occurs on the district, 

requires a float plane or long boat ride across relatively exposed waterways. 

Safety: Successful goat hunters spend an average of 3.4 days traveling in 

remote locations characterized by steep, rough terrain and adverse weather 

conditions. Footing is often slippery and the risk of falls is a concem. 

Wilderness dependence: Although goats historically inhabited only the mainland 

portion of the district, they now occur on Revilla Island as a result of introductions 

to Swan Lake and Upper Mahoney Lake (ADF&G 2004). Due to the success of 

these introductions, a hunting season opened on the eastem part of Revilla 

beginning in the fall of 1993 and a limited drawing hunt has opened for the 

Mahoney herd. However, poor access has resulted in a continued low harvest 

on Revilla Island. In 2001, ADF&G issued an emergency order that closed the 

Cleveland Peninsula for goat hunting due to concerns about low population 

counts and the isolation and fragmentation of the Peninsula's goat herd (ADF&G 

2002a). 

A majority of the guided and unguided goat hunts on the District take place in 

MFNMW (Table 2), and almost all of the guided groups use alpine lake areas for 

access and base camps. Access outside of the wildemess is limited by landable 

lakes and the costs associated with long-distance transports. The ability for 

hunters to disperse across the District to hunt goats is important because the 

quality of the hunt declines when more than one hunting party is on a lake at the 

same time. 

T a bl e 2 R ·d " eSI ent an d non-resl "d ent moun t " am goat h unts 

Wilderness Non-Wilderness 

Resident 30 13 

Non-resident 16 4 

Source: ADF&G harvest data (2004 - 2006) 

15 
Resource effects: Outfitter/guides are required to use Leave No Trace 

techniques to minimize the impacts of their use. For hunts that require camping, 

however, there is the possibility of a guide using the same campsites on an 

annual basis and having a localized effect on the vegetation, water, and soil 

resources. Fixed-wing airplanes account for 75 percent of the transportation 

used by goat hunters. ADF&G has concems about increasing fixed-wing aircraft 

near introduced herds and the effects of disturbance-related stress on goats . 

.. ······~-··--··--·-~rJoweveT;-due--to··current·population-estimates;-they-have·determined·that·goat-········_·_··._. __ ... -

._bunts In Gli7IU-1 A are De~~.harvest gUidelines. Since most goat hLintsOngfnafe ._d ... 

out of lakes and involve floatplane access, there is the potential for additional 

goat hunts to cause social impacts to other user groups (e.g. noise and 

crowding). Goat hunting campsites are typically very remote and conflicts with 

other users are not currently occurring. 

Special management objectives: Because the State has no authority to limit the 

number and location of guided hunts, the Forest Service can assist in managing 

guided use and dispersing the impacts of nonresident harvest. 

Determination of need: Outfitter/guides provide access to hunting opportunities 

that would otherwise be unavailable to many members of the general public 

because of the high level of knowledge, skills, and equipment needed, as well as 

being able to safely conduct the hunt. Outfitter/guides can also help the Forest 

Service meet special management objectives for sustaining goat populations and 

dispersing impacts related to nonresident harvest. Furthermore, the majority of 

high-quality goat habitat and hunting opportunities occur in MFNMW. These 

factors, along with the State of Alaska's requirement for non-resident hunters to 

be accompanied by a licensed guide, indicate there is a public need for 

outfitter/guide goat hunting services in the wildemess and non-wildemess 

portions of KMRD. 

16 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Resource effects: Outfitter/guides are required to use Leave No Trace 

techniques to minimize the impacts of their use. For hunts that require camping, 

however, there is the possibility of a guide using the same campsites on an 

annual basis and having a localized effect on the vegetation, water, and soil 

resources. Fixed-wing airplanes account for 75 percent of the transportation 

used by goat hunters. ADF&G has concems about increasing fixed-wing aircraft 

near introduced herds and the effects of disturbance-related stress on goats . 

.. ······~-··--··--·-~rJoweveT;-due--to··current·population-estimates;-they-have·determined·that·goat-········_·_··._. __ ... -

._bunts In Gli7IU-1 A are De~~.harvest gUidelines. Since most goat hLintsOngfnafe ._d ... 

out of lakes and involve floatplane access, there is the potential for additional 

goat hunts to cause social impacts to other user groups (e.g. noise and 

crowding). Goat hunting campsites are typically very remote and conflicts with 

other users are not currently occurring. 

Special management objectives: Because the State has no authority to limit the 

number and location of guided hunts, the Forest Service can assist in managing 

guided use and dispersing the impacts of nonresident harvest. 

Determination of need: Outfitter/guides provide access to hunting opportunities 

that would otherwise be unavailable to many members of the general public 

because of the high level of knowledge, skills, and equipment needed, as well as 

being able to safely conduct the hunt. Outfitter/guides can also help the Forest 

Service meet special management objectives for sustaining goat populations and 

dispersing impacts related to nonresident harvest. Furthermore, the majority of 

high-quality goat habitat and hunting opportunities occur in MFNMW. These 

factors, along with the State of Alaska's requirement for non-resident hunters to 

be accompanied by a licensed guide, indicate there is a public need for 

outfitter/guide goat hunting services in the wildemess and non-wildemess 

portions of KMRD. 

16 
Black Bear Hunting 

In 2007, four permits authorized 24 black bear hunts on KMRD. Resident 

participation in black bear hunting historically has accounted for about 70 percent 

of the total, however non-resident participation is increasing. There is no guide 

requirement for non-resident hunters. Non-resident hunters have historically 

---------------------honti?dwithoura-Tegistered-guide-andare-increasing!y.::@lying:ontrans~o_rters-to-------------_--::-:--:----

-- ---access-RuRtiRg-locatioRs.--Neitner-tne-cosfola-RuntingJlcense-ana::tags, no~ tne 

cost of transportation to this area, seems to limit the number of non-resident 

hunters who pursue black bear. 

Specials skills needed: The State of Alaska does not require non-resident 

hunters to be accompanied by a licensed guide. Outfitter/guides do possess the 

knowledge and skills required to better identify males and trophy animals. 

Access: Most black bear hunters use boats to access hunting areas, with 

airplanes ranking a distant second. Bears frequent the beaches in search of 

grasses and sedges during the early spring, making them visible and accessible 

to boat-based hunters. Because of their close proximity to town, the Carroll Inlet, 

George Inlet, and Ward Cove-Harriet Hunt Lake Road areas, which are located 

outside of MFNMW, are popular recreational areas for Ketchikan residents where 

high black bear harvest numbers occur. These areas can be accessed by 

relatively short and protected boat rides or in some cases by motor vehicle. 

Safety: Successful black bear hunters spend an average of 2.6 days traveling in 

remote locations characterized by rough terrain and adverse weather conditions. 

Wildlife encounters also pose a risk to safety, particularly if a bear is wounded or 

charges during the hunt. 

Wildemess dependence: Southem Cleveland Peninsula, Revilla Island, and 

MFNMW provide high quality habitat for black bears. Gravina Island and Duke 

Island generally provide lower quality habitat. Black bear hunts take place in 

approximately equal numbers on wilde mess and non-wildemess lands 

throughout the district. 

During the period from 2004-2006, a total of 237 black bears were harvested by 

residents and non-residents.2 Of the 118 bears harvested by residents, 18 bears 

were harvested in MFNMW. Of the 119 bears harvested by non-residents, 60 

were harvested in the wilde mess area, but only 17 were harvested on guided 

hunts. Table 3 provides more information about the non-resident harvest. 

2 The Forest Service issues permits for the number of black bear hunts which 

includes unsuccessful hunts. ADF&G maintains harvest records, but does not have 

records for the number of black bear hunters that are not successful. 

17 

__________________________________________________________ Draft Environmental Impact Statement

Black Bear Hunting 

In 2007, four permits authorized 24 black bear hunts on KMRD. Resident 

participation in black bear hunting historically has accounted for about 70 percent 

of the total, however non-resident participation is increasing. There is no guide 

requirement for non-resident hunters. Non-resident hunters have historically 

---------------------honti?dwithoura-mgistered-guide-andare-incregsi[1g!y.::@lying:ontrans~o_rters-to-------------_--::-:--:----

-- ---access-RuRtiRg-locatioRs.--Neitner-tne-cosfola-RuntingJlcense-ana::tags, no~ tne_ 

cost of transportation to this area, seems to limit the number of non-resident 

hunters who pursue black bear. 

Specials skills needed: The State of Alaska does not require non-resident 

hunters to be accompanied by a licensed guide. Outfitter/guides do possess the 

knowledge and skills required to better identify males and trophy animals. 

Access: Most black bear hunters use boats to access hunting areas, with 

airplanes ranking a distant second. Bears frequent the beaches in search of 

grasses and sedges during the early spring, making them visible and accessible 

to boat-based hunters. Because of their close proximity to town, the Carroll Inlet, 

George Inlet, and Ward Cove-Harriet Hunt Lake Road areas, which are located 

outside of MFNMW, are popular recreational areas for Ketchikan residents where 

high black bear harvest numbers occur. These areas can be accessed by 

relatively short and protected boat rides or in some cases by motor vehicle. 

Safety: Successful black bear hunters spend an average of 2.6 days traveling in 

remote locations characterized by rough terrain and adverse weather conditions. 

Wildlife encounters also pose a risk to safety, particularly if a bear is wounded or 

charges during the hunt. 

Wilderness dependence: Southern Cleveland Peninsula, Revilla Island, and 

MFNMW provide high quality habitat for black bears. Gravina Island and Duke 

Island generally provide lower quality habitat. Black bear hunts take place in 

approximately equal numbers on wilderness and non-wilderness lands 

throughout the district. 

During the period from 2004-2006, a total of 237 black bears were harvested by 

residents and non-residents.2 Of the 118 bears harvested by residents, 18 bears 

were harvested in MFNMW. Of the 119 bears harvested by non-residents, 60 

were harvested in the wilderness area, but only 17 were harvested on guided 

hunts. Table 3 provides more information about the non-resident harvest. 

2 The Forest Service issues permits for the number of black bear hunts which 

includes unsuccessful hunts. ADF&G maintains harvest records, but does not have 

records for the number of black bear hunters that are not successful. 

17 
""" """------"'""""- " 

-._. ' -',-q,."_.-.-

Table 3 . Non-resident black bear harvest on KMRD , 2004-2006 

Non- % Non- % Non-

# wilderness resident Wilderness resident 

Harvested Tvpe of Hunt harvest harvest harvest harvest 

23 Guided 6 5% 17 14% 

40 Unauided 33 28 7 6 

44 Transported 13 11 31 26 

-- 4- ---- - - -Non-guided-----,'-- -""--" - -" --" 

-l:rrn:itir:rQ:sel¥ice= 1 - __ <::1=--= ::3"_ ::3 

2 Lod6e/Camp 2 1 0 0 

6 Other' 4 3 2 1 

Source: ADF&G harvest data (2004-2006) 

• Some fields did not have data and allow further classification 

Resource effects: Since all of the guided black bear hunting is boat-based, there 

are minimal impacts to vegetation, soil, and water resources. Black bear 

harvests on the district have increased from about 25 bears annually in the early 

1 980s to the current average of 67 bears annually, however ADF&G has 

determined that black bear hunts in GMU-1A are currently below harvest level 

guidelines. In some areas (e.g. Margaret Creek and Neets Bay), there have 

been conflicts between bear hunters and bear viewers. Due to past conflicts 

between user groups, a "no discharge of firearms" closure has been issued by 

the Forest Supervisor for the Margaret bear viewing platform. As local interest in 

bear viewing (unguided and guided) continues to grow, issues may arise related 

to human safety and bear preservation. 

Special management objectives: Knowledge provided by outfitter/guides can 

help accomplish ADF&G objectives to maintain a male to female harvest ratio of 

3:1 and a harvest of at least 65 percent males (ADF&G 2002b). In addition, 

ADF&G has predicted that as nonresident harvest continues to increase, 

wounding loss could become a significant source of mortality for the area's black 

bears. Outfitter/guides are familiar with bear behavior, as well as the area's 

terrain, vegetation types, and tracking conditions and may help to address these 

concems. Finally, because the State has no authority to limit the number and 

location of guided hunts, the Forest Service can assist in managing guided use 

and dispersing the impacts of nonresident harvest. 

Determination of need: Outfitter/guides provide access to hunting opportunities 

that would otherwise be unavailable to many members of the general public 

because of the level of knowledge, skills, and equipment needed to safely 

conduct a remote hunt. Outfitter/guides can also help the Forest Service meet 

special management objectives for sustaining black bear populations and 

dispersing impacts related to nonresident harvest. A significant number of nonresidents do not use outfitter/guides to hunt black bears and black bear hunting 

18 

... -

- "" --- " 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

-._. . ...... .......•.... . 

Table 3 . Non-resident black bear harvest on KMRD , 2004-2006 

Non- % Non- % Non-

# wilderness resident Wilderness resident 

Harvested Type of Hunt harvest harvest harvest harvest 

23 Guided 6 5% 17 14% 

40 Unguided 33 28 7 6 

44 Transported 13 11 31 26 

4- ---- - - . Non-guided-----:,-- _. ._. 

-I:rrn:itir:rq:sel¥ice= 1 . __ <::1= ::3 .. ::3 

2 Lodge/Camp 2 1 0 0 

6 Other' 4 3 2 1 

Source: ADF&G harvest data (2004-2006) 

• Some fields did not have data and allow further classification 

Resource effects: Since all of the guided black bear hunting is boat-based, there 

are minimal impacts to vegetation, soil, and water resources. Black bear 

harvests on the district have increased from about 25 bears annually in the early 

1 980s to the current average of 67 bears annually, however ADF&G has 

determined that black bear hunts in GMU-1A are currently below harvest level 

guidelines. In some areas (e.g. Margaret Creek and Neets Bay), there have 

been conflicts between bear hunters and bear viewers. Due to past conflicts 

between user groups, a "no discharge of firearms" closure has been issued by 

the Forest Supervisor for the Margaret bear viewing platform. As local interest in 

bear viewing (unguided and guided) continues to grow, issues may arise related 

to human safety and bear preservation. 

Special management objectives: Knowledge provided by outfitter/guides can 

help accomplish ADF&G objectives to maintain a male to female harvest ratio of 

3:1 and a harvest of at least 65 percent males (ADF&G 2002b). In addition, 

ADF&G has predicted that as nonresident harvest continues to increase, 

wounding loss could become a significant source of mortality for the area's black 

bears. Outfitter/guides are familiar with bear behavior, as well as the area's 

terrain, vegetation types, and tracking conditions and may help to address these 

concems. Finally, because the State has no authority to limit the number and 

location of guided hunts, the Forest Service can assist in managing guided use 

and dispersing the impacts of nonresident harvest. 

Determination of need: Outfitter/guides provide access to hunting opportunities 

that would otherwise be unavailable to many members of the general public 

because of the level of knowledge, skills, and equipment needed to safely 

conduct a remote hunt. Outfitter/guides can also help the Forest Service meet 

special management objectives for sustaining black bear populations and 

dispersing impacts related to nonresident harvest. A significant number of nonresidents do not use outfitter/guides to hunt black bears and black bear hunting 

18 

. .. -

- ...... 
in non-wilderness is common. Hunting opportunities exist on Revilla Island, in 

areas that are relatively easy to access by boat or the remote road system. 

Despite these factors, there is a public need for outfitter/guide black bear hunting 

service in the non-wilderness and wilderness portions of KMRD. Even though in 

recent years only 14% of black bears harvested in MFNMW have been guided 

hunts, continued discussions with the State regarding the rnanagement of 

transporters may increase this portion of the use. 

---Deer-Hunting 

There were two guided deer hunting trips on the KMRD in 2006 and both 

occurred in non-wilderness. 

Specials skills needed: There is no State requirement for a registered guide. 

Deer are commonly hunted without a guide in southeast Alaska as well as many 

states in the Lower 48. The knowledge and skills required to care for an animal 

carcass in accordance with State law may, however, be beyond the average 

person's abilities. 

Access: The majority (67 percent) of deer hunters use boats to access hunting 

areas. Remaining hunters use highway vehicle access or, for a very small 

number, access via floatplane. Easy access from Ketchikan makes South 

Revilla and Gravina Island popular hunting destinations for local residents. 

Safety: While wildlife encounters may pose a risk to hunter safety, quality habitat 

occurs at lower elevations and deer hunting does not pose the safety challenges 

associated with black, brown, and goathunting. In addition, deer are often 

hunted in areas easily accessed by town, reducing the risks associated with 

remote travel and recreation. 

Wilderness dependence: Sitka black-tailed deer occur at moderate-to-Iow levels 

throughout the district, but mainland densities are consistently lower than those 

on maritime-influenced islands. The majority of hunters engage in deer hunting 

outside of wilderness (Table 4), and between 2003 and 2005, there were no 

successful deer harvests in MFNMW. 

Table 4. Deer hunting in game management unit 1A (GMU-1A), 2003-2005 

# Hunting Trips # Successful Trips Days Hunted 

Wilderness 78 0 138 

Non-wilderness 2,419 637 5,168 

Source: ADF&G harvest data (2003-2005). 

Note: ADF&G does not keep track of deer hunting by residents and non-residents. 

19 

__________________________________________________________ Draft Environmental Impact Statement

in non-wilderness is common. Hunting opportunities exist on Revilla Island, in 

areas that are relatively easy to access by boat or the remote road system. 

Despite these factors, there is a public need for outfitter/guide black bear hunting 

service in the non-wilderness and wilderness portions of KMRD. Even though in 

recent years only 14% of black bears harvested in MFNMW have been guided 

hunts, continued discussions with the State regarding the management of 

transporters may increase this portion of the use. 

---Deer-Hunting 

There were two guided deer hunting trips on the KMRD in 2006 and both 

occurred in non-wilderness. 

Specials skills needed: There is no State requirement for a registered guide. 

Deer are commonly hunted without a guide in southeast Alaska as well as many 

states in the Lower 48. The knowledge and skills required to care for an animal 

carcass in accordance with State law may, however, be beyond the average 

person's abilities. 

Access: The majority (67 percent) of deer hunters use boats to access hunting 

areas. Remaining hunters use highway vehicle access or, for a very small 

number, access via floatplane. Easy access from Ketchikan makes South 

Revilla and Gravina Island popular hunting destinations for local residents. 

Safety: While wildlife encounters may pose a risk to hunter safety, quality habitat 

occurs at lower elevations and deer hunting does not pose the safety challenges 

associated with black, brown, and goathunting. In addition, deer are often 

hunted in areas easily accessed by town, reducing the risks associated with 

remote travel and recreation. 

Wilderness dependence: Sitka black-tailed deer occur at moderate-to-Iow levels 

throughout the district, but mainland densities are consistently lower than those 

on maritime-influenced islands. The majority of hunters engage in deer hunting 

outside of wilderness (Table 4), and between 2003 and 2005, there were no 

successful deer harvests in MFNMW. 

Table 4. Deer huntin~ in ~ame mana ~ement unit 1 A (GMU-1 A), 2003-2005 

# Hunting Trips # Successful Trips Davs Hunted 

Wilderness 78 0 138 

Non-wilderness 2,419 637 5,168 

Source. ADF&G harvest data (2003-2005). 

Note: ADF&G does not keep track of deer hunting by residents and non-residents. 

19 
Resource effects: The few guided trips that have occurred have been boatbased and there are minimal impacts to vegetation, soil, and water resources. 

The Alaska Department of Fish and Game has determined that deer hunts in 

GMU-1 A are below harvest level guidelines, however they have expressed a 

concern that long-term habitat loss may reduce the ability to provide for 

subsistence needs and local hunting opportunities. The hunting season primarily 

occurs in the fall when visitor use is relatively low and there are no current social 

concerns. Some areas could experience conflicts with subsistence use if guided 

·-·~··~dEmrhTlhtihg··s[jDstahtiaIIYih·creas·e·d··ih·locations·that·arepop[jlarwith··--~ 

Special rnanagement objectives: Because the State has no authority to limit the 

number and location of guided hunts, the Forest Service can assist in managing 

guided use and dispersing the impacts of nonresident harvest. 

Determination of need: Residents of Ketchikan and the surrounding communities 

frequently access nearby deer hunting areas by relatively short and protected 

boat rides, or by motor vehicle. In addition, there is no State requirement for a 

registered guide. Between 2003 and 2005, less than three percent of deer 

hunting trips occurred in wilderness, and none were successful. Therefore, there 

is no need for guided deer hunting on the wilderness or non-wildemess portions 

of the district. 

20 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Resource effects: The few guided trips that have occurred have been boatbased and there are minimal impacts to vegetation, soil, and water resources. 

The Alaska Department of Fish and Game has determined that deer hunts in 

GMU-1 A are below harvest level guidelines, however they have expressed a 

concern that long-term habitat loss may reduce the ability to provide for 

subsistence needs and local hunting opportunities. The hunting season primarily 

occurs in the fall when visitor use is relatively low and there are no current social 

concerns. Some areas could experience conflicts with subsistence use if guided 

·-·~··~dEmrhTliitihg··s[jDstahtiaIIYih·creas·e·d··ih·locations·that·arepop[jlarwith··--~ 

Special management objectives: Because the State has no authority to limit the 

number and location of guided hunts, the Forest Service can assist in managing 

guided use and dispersing the impacts of nonresident harvest. 

Determination of need: Residents of Ketchikan and the surrounding communities 

frequently access nearby deer hunting areas by relatively short and protected 

boat rides, or by motor vehicle. In addition, there is no State requirement for a 

registered guide. Between 2003 and 2005, less than three percent of deer 

hunting trips occurred in wildemess, and none were successful. Therefore, there 

is no need for guided deer hunting on the wildemess or non-wildemess portions 

of the district. 

20 
. 

"'"", ~.-.-.~----~ 

Floatplane Landing Tours: 

Ten companies were authorized to be outfitter/guides for lake landings or shore 

landings in 2007. Table 5 displays authorized and actual floatplane use on 

KMRD between 2004 and 2007, the majority of which took place within MFNMW. 

T a e bl 5 A h . d d . ut onze an actua use In service d ays 

-20041 . 2005- .. 2006- -2007 -1- Average 

- ,--' - # of-ser.vice days ,,-_.'- .. -- ,,_.'-- -- ._-"".- ,,,,,,,,,_. 

Authorized Use 11,715 13,107 14,161 13,672 13,164 

Actual Use 10,106 8,535 9,058 8,137 8,959 

Source: Actual use reports 

Specials skills needed: A skilled and licensed pilot is needed to be able to land 

at remote mountain lakes, regardless of whether the people on the plane are 

guided. The knowledge and skills required to maintain and fly an airplane are 

beyond the average person's abilities. 

Access: Float plane landings require the use of fixed-wing airplanes to access 

remote alpine lakes for scenic viewing. 

Safety: Airplanes can be subject to dramatic changes in conditions on any given 

day. Knowledge of the terrain, weather pattems, local flying conditions, and 

coordination with the flying patterns is an important aspect of the service 

provided. Routes may vary daily depending on cloud conditions. There are 

safety concems about the number and location of aircraft landing at, and flying 

over, the lakes (USDA 2002). 

Wilderness dependence: The primary attractions to MFNMW are the glaciallycut landforms, steep fiords, waterfalls and stunning scenery. The opportunity for 

visitors to experience these attractions via floatplane landing tours offers a 

unique setting not available in the Ketchikan vicinity outside of the wilderness. 

MFNMW's niche among Tongass National Forest wilderness areas includes 

floatplane landing tours 

The majority of floatplane landings occur at remote, alpine lakes in MFNMW. 

There were 31 locations where landings occur on the district in 2004-2005 and 

26 were inside wilderness (Table 6). While there are trails to several lakes from 

salt water, visitors access the lakes primarily by floatplane. Table 5 displays 

wilde mess and non-wildereness lake landings. 

21 

.. ... - ----.,'-

__________________________________________________________ Draft Environmental Impact Statement

. 

- -,-"",~.-.-.~----~ 

Floatplane Landing Tours: 

Ten companies were authorized to be outfitter/guides for lake landings or shore 

landings in 2007. Table 5 displays authorized and actual floatplane use on 

KMRD between 2004 and 2007, the majority of which took place within MFNMW. 

T a bl e 5 A . u th onze . ddt an ac ua use In service d ays 

"20041 . 2005"1"2006" "1"2007 "I Average 

- ,--- " # of-ser.vice days - ,,-_.'- .. -- ,,_.'-- -- ._-""._'''' 

Authorized Use 11,715 1 13,1071 14,161 1 13,6721 13,164 

Actual Use 10,1061 8,5351 9,0581 8,1371 8,959 

Source: Actual use reports 

Specials skills needed: A skilled and licensed pilot is needed to be able to land 

at remote mountain lakes, regardless of whether the people on the plane are 

guided. The knowledge and skills required to maintain and fly an airplane are 

beyond the average person's abilities. 

Access: Float plane landings require the use of fixed-wing airplanes to access 

remote alpine lakes for scenic viewing. 

Safety: Airplanes can be subject to dramatic changes in conditions on any given 

day. Knowledge of the terrain, weather pattems, local flying conditions, and 

coordination with the flying patterns is an important aspect of the service 

provided. Routes may vary daily depending on cloud conditions. There are 

safety concerns about the number and location of aircraft landing at, and flying 

over, the lakes (USDA 2002). 

Wilderness dependence: The primary attractions to MFNMW are the glaciallycut landforms, steep fiords, waterfalls and stunning scenery. The opportunity for 

visitors to experience these attractions via floatplane landing tours offers a 

unique setting not available in the Ketchikan vicinity outside of the wilderness. 

MFNMW's niche among Tongass National Forest wilderness areas includes 

floatplane landing tours 

The majority of floatplane landings occur at remote, alpine lakes in MFNMW. 

There were 31 locations where landings occur on the district in 2004-2005 and 

26 were inside wilderness (Table 6). While there are trails to several lakes from 

salt water, visitors access the lakes primarily by floatplane. Table 5 displays 

wilderness and non-wildereness lake landings. 

21 

.. ... - ----.,--
Table 6. Locations of landings on KMRD wilderness and non-wilderness, 

2004-2005 

Land Use # of Locations # Lake Locations # Other Locations 

Wilderness 25 24 1 

Non-wilderness 6 6 0 

31 30 1 

Source: outfitter/gUide database, average use from 2004·2005 

~" ,"- - ~ ""_. -,."-" -".' 

Special rnanagernent objectives: Outfitter/guides provide opportunities for 

special populations, including the disabled and the elderly, to access certain 

areas and to participate in recreational and educational activities. 

Outfitter/guides also provide opportunities for public use, enjoyment, and 

understanding of the wilderness as a large percentage of visitors to MFNMW 

access the area via floatplane landing tours. 

Resource Effects: Since clients remain on the plane, there are minimal impacts 

to vegetation, soil, and water resources. Float plane traffic may also cause 

disturbance-related impacts to wildlife because of the number of flights and the 

the regularity of flights taking place in a concentrated area. There are no studies 

specific to MFNMW that address these potential impacts to wildlife, but the 

Alaska Department of Fish and Game has expressed concerns about increasing 

fixed-wing aircraft near introduced goat herds and numerous scientific articles 

address aircraft (helicopter and fixed wing) effects on wildlife (Foster and Rahs 

1983; ADF&G 2002a; Frid 2003, Goldstein and others 2005). 

Floatplane tours occur in the summer, when conflicts between recreational users 

(both guided and unguided) have the greatest chance of occurring. ANILCA 

allows for airplane use in wilderness areas, but the authorization of airplane use 

for commercial use requires the determination of their need as stated in the 

Wilderness Act. Several of the lakes used for f1ightseeing landings have public 

recreation cabins located on them. Visitors using these cabins arrive at the lakes 

by air taxi, are unguided, and have an expectation of solitude. Other parties at 

the lake (e.g. guided or unguided fishing parties and hikers who have accessed 

the lake from saltwater via an established trail) could also be affected. 

Table 7 displays the average number of landings per day and per year at 

wilderness lakes and lakes that have public recreation cabins. The Forest Plan 

includes the Recreation Opportunity Spectrum (ROS) which provides a 

framework of settings and experience opportunities to define the capabilities of 

NFS lands to meet identified recreation needs and services. The ROS number of 

encounters is also shown to provide a comparison between ROS encounters and 

the average number of landings per day. As indicated, landings per day currently 

exceed ROS guidelines on several lakes within the wilderness. 

22 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Table 6. Locations of landings on KMRD wilderness and non-wilderness, 

2004-2005 

Land Use # of Locations # Lake Locations # Other Locations 

Wilderness 25 24 1 

Non-wilderness 6 6 0 

31 30 1 

Source: outfitter/gUide database, average use from 2004·2005 

Special rnanagementobjectives: Outfitter/guides provide opportunities fo"r 

special populations, including the disabled and the elderly, to access certain 

areas and to participate in recreational and educational activities. 

Outfitter/guides also provide opportunities for public use, enjoyment, and 

understanding of the wilderness as a large percentage of visitors to MFNMW 

access the area via floatplane landing tours. 

Resource Effects: Since clients remain on the plane, there are minimal impacts 

to vegetation, soil, and water resources. Float plane traffic may also cause 

disturbance-related impacts to wildlife because of the number of flights and the 

the regularity of flights taking place in a concentrated area. There are no studies 

specific to MFNMW that address these potential impacts to wildlife, but the 

Alaska Department of Fish and Game has expressed concerns about increasing 

fixed-wing aircraft near introduced goat herds and numerous scientific articles 

address aircraft (helicopter and fixed wing) effects on wildlife (Foster and Rahs 

1983; ADF&G 2002a; Frid 2003, Goldstein and others 2005). 

Floatplane tours occur in the summer, when conflicts between recreational users 

(both guided and unguided) have the greatest chance of occurring. ANILCA 

allows for airplane use in wilderness areas, but the authorization of airplane use 

for commercial use requires the determination of their need as stated in the 

Wilderness Act. Several of the lakes used for f1ightseeing landings have public 

recreation cabins located on them. Visitors using these cabins arrive at the lakes 

by air taxi, are unguided, and have an expectation of solitude. Other parties at 

the lake (e.g. guided or unguided fishing parties and hikers who have accessed 

the lake from saltwater via an established trail) could also be affected. 

Table 7 displays the average number of landings per day and per year at 

wilderness lakes and lakes that have public recreation cabins. The Forest Plan 

includes the Recreation Opportunity Spectrum (ROS) which provides a 

framework of settings and experience opportunities to define the capabilities of 

NFS lands to meet identified recreation needs and services. The ROS number of 

encounters is also shown to provide a comparison between ROS encounters and 

the average number of landings per day. As indicated, landings per day currently 

exceed ROS guidelines on several lakes within the wilderness. 

22 
- ---"~'--" ,,-'". ""--.-" 

Table 7. Outfitter/guide floatplane landing tours on MFNMW lakes, 2004-

2005 

Lake 

(# public Avg. 

recreation People Avg. Avg. 

cabins Per Landings Landings 

resent)-~~ - -Year-- -Per Year - Per-Day" 

BlcfGoat (It 2, 137 3:36 3.1 

Manzanita (2) 70 16 0.1 

Manzoni (0) 1,911 308 2.9 

Nooya (0)/\ 3,861 600 5.6 

Walker (0) 536 94 0.9 

Wilson (2) 112 13 0.1 

Punchbowl (0) 358 65 0.6 

Leduc (0) 194 25 0.2 

Little Goat (0) 69 20 0.2 

9,248 1477 1.5 

* Source: outfitter/guide database, average use from 2004-2005 

"Assumes a 107~day season (June 1 - September 15) 

1\ Nooya Lake has a shelter 

Avg. Days 

in Season 

Exceeding 

ROS 3 or 6 

Encounters Landings 

Per~Day--- -",. Per Da 

6 12 

6 0 

3 33 

6 35 

3 4 

6 0 

6 0 

3 0 

6 0 

Special management objectives: Outfitter/guides facilitate the public use, 

enjoyment, understanding, and appreciation of MFNMW. 

Determination of need: At current levels, there are concems that floatplane 

landing tours are reducing the Forest Service's ability to provide opportunities for 

solitude and protect wilderness character in MFNMW. Outfitter/guides, however, 

provide access to recreational opportunities that would otherwise be unavailable 

to many members of the general public because of the high level of knowledge, 

skills, and equiprnent needed to safely access remote portions of KMRD. 

Floatplane landing tours provide an opportunity for the public to see, understand, 

and appreciate the glacially-cut landforrns, steep fiords, waterfalls and stunning 

scenery of MFNMW, a unique setting not available outside the wilderness. They 

also allow special populations (e.g. disabled and elderly to participate in 

recreational and educational activities that would otherwise not be available. 

These factors indicate that there is a need for floatplane landing tours in MFNMW 

and the non-wilderness portion of KMRD. However, given the existing level of 

floatplane use in MFNMW, and related resource concems, outfitter/guide use 

may need to be reduced at some locations to protect wildlife, provide 

opportunities for solitude, and maintain wilderness character. 

23 

" .......... _---,,-, " 

__________________________________________________________ Draft Environmental Impact Statement

- ---"~'--" ,,-'". ""--.-" 

Table 7. Outfitter/guide floatplane landing tours on MFNMW lakes, 2004-

2005 

Lake 

(# public Avg. 

recreation People Avg. Avg. 

cabins Per Landings Landings 

----present)-~- - -Year-- -Per Year - Per-Day" 

BIcfGoat (It 2,137 3:36 . 3.1. 

Manzanita (2) 70 16 0.1 

Manzoni (0) 1,911 308 2.9 

Nooya (0)/\ 3,861 600 5.6 

Walker (0) 536 94 0.9 

Wilson (2) 112 13 0.1 

Punchbowl (0) 358 65 0.6 

Leduc (0) 194 25 0.2 

Little Goat (0) 69 20 0.2 

9,248 1477 1.5 

* Source: outfitter/guide database, average use from 2004-2005 

"Assumes a 107-day season (June 1 - September 15) 

1\ Nooya Lake has a shelter 

Avg. Days 

in Season 

Exceeding 

ROS 3 or 6 

Encounters Landings 

Per-Day--- -",. Per Da 

6 12 

6 0 

3 33 

6 35 

3 4 

6 0 

6 0 

3 0 

6 0 

Special management objectives: Outfitter/guides facilitate the public use, 

enjoyment, understanding, and appreciation of MFNMW. 

Determination of need: At current levels, there are concems that floatplane 

landing tours are reducing the Forest Service's ability to provide opportunities for 

solitude and protect wilderness character in MFNMW. Outfitter/guides, however, 

provide access to recreational opportunities that would otherwise be unavailable 

to many members of the general public because of the high level of knowledge, 

skills, and equiprnent needed to safely access remote portions of KMRD. 

Floatplane landing tours provide an opportunity for the public to see, understand, 

and appreciate the glacially-cut landforrns, steep fiords, waterfalls and stunning 

scenery of MFNMW, a unique setting not available outside the wilderness. They 

also allow special populations (e.g. disabled and elderly to participate in 

recreational and educational activities that would otherwise not be available. 

These factors indicate that there is a need for floatplane landing tours in MFNMW 

and the non-wilderness portion of KMRD. However, given the existing level of 

floatplane use in MFNMW, and related resource concems, outfitter/guide use 

may need to be reduced at some locations to protect wildlife, provide 

opportunities for solitude, and maintain wilderness character. 

23 

" .......... _---,,-, " 
Freshwater Fishing 

In 2007, KMRD authorized 17 outfitter/guides for freshwater fishing. There were 

1,336 service days authorized for freshwater fishing and actual use was 556 

service days. 

Specials skills needed: The State of Alaska does not require non-resident fishers 

..... ~.~ ... ~.~ ..... ~.~ ... ~tobeaccompanied~by~a ... licensed .. guide.~UnguidedJreshwateLfishingjs .. common.~~ ~~ ............ ~ ... ~~ .. 

------·f0r-resideftts~aflel~fl0fl-fesielefltS;_8l3eeial-skHIs-fer~ffesAwater~fisA·iA§-aFe-§eAerttlly----­

..... not neeaea-. -~~~""' .. -~--~--.~~~-.. ~.-.-"~~~~' 

Access: Access to freshwater fishing opportunities outside of the immediate 

Ketchikan road system requires a plane or boat. Visitors from outside Ketchikan 

can rent boats, but the majority of this use is believed to be for saltwater fishing. 

Safety: Fishing often takes place in riparian areas that are frequented by bears. 

While bear encounters can take place throughout the forest, the possibility of a 

bear encounter can be higher in riparian locations, 

Wildemess dependence: During 2004 and 2005 outfitter/guides who took clients 

freshwater fishing visited a total of 38 locations on KMRD. Twenty-six of those 

locations were inside wilderness. 

Resource Effects: Because the majority of freshwater fishing tours are day use 

and boat-based, impacts to soil, vegetation, and water resources are minimized. 

Guided freshwater fishing, however, has the potential to contribute to bank 

e'rosion and development of streamside trails. There may also be concerns 

related to the spread of non-native species along shorelines and river corridors in 

remote locations. Social impacts may include conflicts with subsistence users 

and contributions to noise and visual impacts from floatplane landings. In areas 

popular with local residents, such as Ward Creek, there is also the potential for 

conflict between the unguided and guided public. 

Special management objectives: Outfitter/guides promote proper catch and 

release techniques and an understanding of population dynamics in isolated 

streams and lakes where catch levels may exceed the levels desired for 

sustaining fish populations. Also, by managing guided use, the Forest Service 

can assist in dispersing the impacts of nonresident harvest, particularly in areas 

important for subsistence use. 

Determination of need: Outfitter/guides provide access to fishing opportunities 

that would otherwise be unavailable to many members of the general public. 

They also help promote sustainable fisheries by promoting proper fishing 

etiquette. As a result, there is a need for outfitter/guide services in the nonwildemess and wilderness portions of KMRD. 

24 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Freshwater Fishing 

In 2007, KMRD authorized 17 outfitter/guides for freshwater fishing. There were 

1,336 service days authorized for freshwater fishing and actual use was 556 

service days. 

Specials skills needed: The State of Alaska does not require non-resident fishers 

..... ~.~ ... ~.~ ..... ~.~ ... ~tobeaccompanied~by~a ... licensed~.guide.~UnguidedJreshwateLfishingjs .. common.~~ ~~ ... ~ ..... ~ .. ~ ... ~~ .. 

-----~f0r-resideftts~aftel~ft0f1-fesidef1tS;_8l3eeial-skHIs-fer~ffesAwater~fisA·iA§-aFe-§eAerttlly----­

... _. not neeaea-. -~~~.-.-.-~--~--.~~~-~~.-.-~'~~~~' 

Access: Access to freshwater fishing opportunities outside of the immediate 

Ketchikan road system requires a plane or boat. Visitors from outside Ketchikan 

can rent boats, but the majority of this use is believed to be for saltwater fishing. 

Safety: Fishing often takes place in riparian areas that are frequented by bears. 

While bear encounters can take place throughout the forest, the possibility of a 

bear encounter can be higher in riparian locations, 

Wilderness dependence: During 2004 and 2005 outfitter/guides who took clients 

freshwater fishing visited a total of 38 locations on KMRD. Twenty-six of those 

locations were inside wilderness. 

Resource Effects: Because the majority of freshwater fishing tours are day use 

and boat-based, impacts to soil, vegetation, and water resources are minirnized. 

Guided freshwater fishing, however, has the potential to contribute to bank 

e'rosion and development of streamside trails. There may also be concerns 

related to the spread of non-native species along shorelines and river corridors in 

remote locations. Social impacts may include conflicts with subsistence users 

and contributions to noise and visual impacts from floatplane landings. In areas 

popular with local residents, such as Ward Creek, there is also the potential for 

conflict between the unguided and guided public. 

Special management objectives: Outfitter/guides promote proper catch and 

release techniques and an understanding of population dynamics in isolated 

streams and lakes where catch levels may exceed the levels desired for 

sustaining fish populations. Also, by managing guided use, the Forest Service 

can assist in dispersing the impacts of nonresident harvest, particularly in areas 

important for subsistence use. 

Determination of need: Outfitter/guides provide access to fishing opportunities 

that would otherwise be unavailable to rnany members of the general public. 

They also help promote sustainable fisheries by promoting proper fishing 

etiquette. As a result, there is a need for outfitter/guide services in the nonwildemess and wilderness portions of KMRD. 

24 
Remote Setting Nature Tours 

There are currently 11 outfitter/guides authorized to provide remote setting 

nature tours on KMRD. This activity category includes shoreline excursions in 

association with sea kayak or floatplane tours, sightseeing, wildlife viewing at 

undeveloped sites, beachcombing, hiking, and other related activities. In 2007, 

there were 10,803 service days authorized, and 7,975 days used, for remote 

setting nature tours. Betton Island receives a large majority of the remote setting 

nature-munlsmnl1on-::wiltl8,n1:H,s-lJe-caUStfOfits-proXimitTto-Ketchll<arnrn-d-~~-

~~~~~--~-_-o;;c~o;;'nn~e~ctlontotnecruise snipinaustry: - -- ----- ----- ------ -- ----- ---

Specials skills needed: Remote setting nature tours generally do not require 

special skills. 

Access: The majority of use takes place via boat. 

Safety: knowledge of tides and wildlife behavior can help ensure safe 

opportunities for the public to use and enjoy the Forest. Remote setting nature 

tours often occur in tidal and riparian areas where bear encounters may be 

common, particularly in the wilde mess portion of the district. 

Wilderness dependence: Outfitter/guides used 26 locations in the wilderness 

area and 13 locations in nonwilderness during 2004 and 2005. Of the 

approximately 8,700 guided visitors in this activity type, an average of 8,600 

visitors per year used non-wilderness locations and 90 visitors used wilderness 

locations during the period 2004-2005. Most of the remote setting nature tours in 

wilderness take place in the core area surrounding Rudyerd Bay and involve the 

use of the shoreline or established hiking trails as part of a primitive recreation 

experience. 

Resource effects: Because the majority of remote setting nature tours are day 

use and boat-based, impacts to soil, vegetation, and water resources are 

minimized. On Betton Island, where a large majority of the remote setting nature 

tours occur, use is limited to beach areas and a developed trail. The level of use 

in wilderness is currently low and concentrated near the tidal zone and along 

established Forest Service trails. There are, however, concerns related to the 

introduction or spread of non-native species that may be carried by the gear of 

persons visiting the area, particularly to remote, wilderness locations. _ 

Guided groups, particularly large ones, do have the potential to impact smaller 

and/or unguided groups. There have been complaints regarding the large 

amount of guided use at Betton Island, where previous unguided users have 

been displaced. Use of Rudyerd Bay is often concentrated near popular lakes, 

trails, and camping sites, which increases the potential for social crowding and 

may reduce opportunities for solitude. 

25 

__________________________________________________________ Draft Environmental Impact Statement

Remote Setting Nature Tours 

There are currently 11 outfitter/guides authorized to provide remote setting 

nature tours on KMRD. This activity category includes shoreline excursions in 

association with sea kayak or floatplane tours, sightseeing, wildlife viewing at 

undeveloped sites, beachcombing, hiking, and other related activities. In 2007, 

there were 10,803 service days authorized, and 7,975 days used, for remote 

setting nature tours. Betton Island receives a large majority of the remote setting 

nature-munlsmnl1on-::wiltl8,n1:H,s-lJe-caUStfOfits-proXimitTto-Ketchll<arnrn-d-~-- -------~-

.~~~"="~ .. 'c;ce;;o~n;';;n;';;e~ctlontotnecruise snipinaustry: . .. ..... ..... .....- ......... . 

Specials skills needed: Remote setting nature tours generally do not require 

special skills. 

Access: The majority of use takes place via boat. 

Safety: knowledge of tides and wildlife behavior can help ensure safe 

opportunities for the public to use and enjoy the Forest. Remote setting nature 

tours often occur in tidal and riparian areas where bear encounters may be 

common, particularly in the wilde mess portion of the district. 

Wilderness dependence: Outfitter/guides used 26 locations in the wilderness 

area and 13 locations in nonwildemess during 2004 and 2005. Of the 

approximately 8,700 guided visitors in this activity type, an average of 8,600 

visitors per year used non-wilderness locations and 90 visitors used wilderness 

locations during the period 2004-2005. Most of the remote setting nature tours in 

wilderness take place in the core area surrounding Rudyerd Bay and involve the 

use of the shoreline or established hiking trails as part of a prirnitive recreation 

experience. 

Resource effects: Because the majority of remote setting nature tours are day 

use and boat-based, impacts to soil, vegetation, and water resources are 

minimized. On Betton Island, where a large majority of the rernote setting nature 

tours occur, use is limited to beach areas and a developed trail. The level of use 

in wilderness is currently low and concentrated near the tidal zone and along 

established Forest Service trails. There are, however, concerns related to the 

introduction or spread of non-native species that may be carried by the gear of 

persons visiting the area, particularly to rernote, wilderness locations .. 

Guided groups, particularly large ones, do have the potential to impact smaller 

and/or unguided groups. There have been complaints regarding the large 

amount of guided use at Betton Island, where previous unguided users have 

been displaced. Use of Rudyerd Bay is often concentrated near popular lakes, 

trails, and camping sites, which increases the potential for social crowding and 

may reduce opportunities for solitude. 

25 
Special management objectives: Outfitter/guides provide opportunities for public 

use, enjoyment, and understanding of the wilderness, through experiences that 

depend upon a wilderness setting and are consistent with management of the 

area as wilderness. Remote setting nature tours provide opportunities for 

primitive recreation on both the wilderness and non-wilderness portions of 

KMRD. Walking tours also provide an opportunity for visitors to experience the 

sounds, smells, and sights of the forest. 

geterminati0n~0f~neeEl:"" ~veRAR0ugR4Re~maj0.itY~0MRes~at>tivities=El0~n0t~""""=",,~~~~~~~ 

·"reqaire-sIYe-cial-skills";-ootfitter/gulde-s·prollide-acc"es"s-to-re-cre"ational-opportonltieS" 

that would otherwise be unavailable to many members of the general public 

because of equipment needed to safely access remote locations. 

Outfitter/guides also help the Forest Service meet special management 

objectives to provide opportunities for public use, enjoyment, and understanding 

of the wilderness through primitive recreation experiences that are consistent 

with management of the area as wilderness. As a result, there is a public need 

for outfitter/guide services for these activities on wilderness and non-Wilderness 

portions of KMRD. 

26 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Special management objectives: Outfitter/guides provide opportunities for public 

use, enjoyment, and understanding of the wildemess, through experiences that 

depend upon a wilde mess setting and are consistent with management of the 

area as wildemess. Remote setting nature tours provide opportunities for 

primitive recreation on both the wilde mess and non-wildemess portions of 

KMRD. Walking tours also provide an opportunity for visitors to experience the 

sounds, smells, and sights of the forest. 

geterminati0n~0f~neeEl:"" ~veRAR0ugR4Re"maj0.itY~0MRes~at>tivities=El0~n0te""""=,,"~~~~~~~ 

·"reqaire-SIYe-cial-skills";-ootfitter/gulde-s·prollide-acc"es"s-to-re-cre"ational-opportonltieS" 

that would otherwise be unavailable to many members of the general public 

because of equipment needed to safely access remote locations. 

Outfitter/guides also help the Forest Service meet special management 

objectives to provide opportunities for public use, enjoyment, and understanding 

of the wildemess through primitive recreation experiences that are consistent 

with management of the area as wildemess. As a result, there is a public need 

for outfitter/guide services for these activities on wildemess and non-wildemess 

portions of KMRD. 

26 
Wildlife Viewing at Developed Sites 

Wildlife viewing, primarily brown and black bear viewing, on KMRD takes place at 

two developed sites: Margaret Creek (23 miles north of Ketchikan) and Fish 

Creek (in Hyder, Alaska). There were six outfitter/guides who were authorized 

use at Margaret Creek in 2007. These outfitter/guides were authorized 3,436 

service days and used 1,333 service days. There were 12 outfitter/guides who 

were authorized use at Fish Creek. These outfitter/guides were authorized 2,308 

service days and used 876 service d_ays. 

- _ .. -_. __ ___ "_"_, __ .• _____ "" "-," •• _-_._. "' __ ,_, ••• " .' ______ , ____ .,,___ . __ .""... H._' ""_ 

Special skills needed: Both sites are visited by the guided and unguided public. 

While no special skills are required to walk around the site, outfitter/guides have 

a better understanding of bear behavior and biology and are able to share this 

information with their clients. 

Access: Access to Hyder is primarily by motor vehicle. Access to Margaret 

requires use of a boat or floatplane. 

Safety: Both of these locations are in riparian areas that have high levels of bear 

activity. In the case of Fish Creek, brown bears are present and add an extra 

level of concem. Emergency services to Hyder and nearby Stewart, B.C. are 

available by road from Fish Creek, while Margaret Creek is more remote and 

requires a boat or floatplane for access to Ketchikan emergency services. In 

addition, outfitter/guides typically have larger groups than unguided groups, and 

larger groups have statistically less chance of having an encounter resulting in 

injury. Outfitter/guides also carry protective equipment, such as firearms and/or 

pepper spray in case of an encounter, and are more familiar with interpreting 

bear behavior. 

Wilderness dependence: Both sites are in non-wilde mess. Development of bear 

viewing sites in wilderness is not cornpatible with rnanagernent objectives to 

provide for experiences that depend upon a wilderness setting. 

Resource effects: Guided and unguided use is concentrated on existing Forest 

roads, trails, and platforms in the bear viewing areas, which minimizes impacts to 

soil, vegetation, and water resources. Regular human presence may have a 

localized impact on bear populations that have the potential to become 

habituated to hurnan interaction and change their behavioral patterns in response 

to human disturbance. There have also been conflicts between visitors 

interested in wildlife viewing and visitors interested in hunting opportunities, 

particularly in the Margaret area. 

Special managernent objectives: Outfitter/guides that offer wildlife viewing tours 

at developed sites help the Forest Service provide opportunities for special 

populations, including the disabled and the elderly, to participate in recreational 

and educational activities. 

27 

__________________________________________________________ Draft Environmental Impact Statement

Wildlife Viewing at Developed Sites 

Wildlife viewing, primarily brown and black bear viewing, on KMRD takes place at 

two developed sites: Margaret Creek (23 miles north of Ketchikan) and Fish 

Creek (in Hyder, Alaska). There were six outfitter/guides who were authorized 

use at Margaret Creek in 2007. These outfitter/guides were authorized 3,436 

service days and used 1,333 service days. There were 12 outfitter/guides who 

were authorized use at Fish Creek. These outfitter/guides were authorized 2,308 

service days and used 876 service d_ays. 

--~-.~ .. --.--.-~'"~.~.-.---"-"-,-- .. - .. -,,-.~-----"" '.-,"'---_._.",--,-, ... " --""'.~-".-~-.~--- --,-- -_.,,--- . -_."" .... ,.-"'''-

Special skills needed: Both sites are visited by the guided and unguided public. 

While no special skills are required to walk around the site, outfitter/guides have 

a better understanding of bear behavior and biology and are able to share this 

information with their clients. 

Access: Access to Hyder is primarily by motor vehicle. Access to Margaret 

requires use of a boat or floatplane. 

Safety: Both of these locations are in riparian areas that have high levels of bear 

activity. In the case of Fish Creek, brown bears are present and add an extra 

level of concem. Emergency services to Hyder and nearby Stewart, B.C. are 

available by road from Fish Creek, while Margaret Creek is more remote and 

requires a boat or floatplane for access to Ketchikan emergency services. In 

addition, outfitter/guides typically have larger groups than unguided groups, and 

larger groups have statistically less chance of having an encounter resulting in 

injury. Outfitter/guides also carry protective equipment, such as firearms and/or 

pepper spray in case of an encounter, and are more familiar with interpreting 

bear behavior. 

Wilderness dependence: Both sites are in non-wilde mess. Development of bear 

viewing sites in wilderness is not cornpatible with rnanagernent objectives to 

provide for experiences that depend upon a wilderness setting. 

Resource effects: Guided and unguided use is concentrated on existing Forest 

roads, trails, and platforms in the bear viewing areas, which minimizes impacts to 

soil, vegetation, and water resources. Regular human presence may have a 

localized impact on bear populations that have the potential to become 

habituated to hurnan interaction and change their behavioral patterns in response 

to human disturbance. There have also been conflicts between visitors 

interested in wildlife viewing and visitors interested in hunting opportunities, 

particularly in the Margaret area. 

Special managernent objectives: Outfitter/guides that offer wildlife viewing tours 

at developed sites help the Forest Service provide opportunities for special 

populations, including the disabled and the elderly, to participate in recreational 

and educational activities. 

27 
Determination of need: The special skills that outfitter/guides provide, along with 

the combination of access and safety issues, indicate there is a public need for 

outfitter/guide services in non-wilderness portions of KMRD. More importantly, 

outfitter/guides provide a unique opportunity for special populations to participate 

in recreational and educational opportunities on the Forest. However, there is no 

need for developed wildlife viewing sites in the wilderness portion of the KMRD. 

28 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Determination of need: The special skills that outfitter/guides provide, along with 

the combination of access and safety issues, indicate there is a public need for 

outfitter/guide services in non-wilderness portions of KMRD. More importantly, 

outfitter/guides provide a unique opportunity for special populations to participate 

in recreational and educational opportunities on the Forest. However, there is no 

need for developed wildlife viewing sites in the wilderness portion of the KMRD. 

28 
Camping 

Two outfitter/guides were authorized to camp in 2007. In 2004 and 2005, there 

were only three locations (Checats Cove, Punchbowl, and Walker Cove) where 

guided camping activities occurred, and all three were inside MFNMW. 

Authorized use in 2007 was 80 service days. An average of 60 clients per year 

used these three locations between 2004 and 2005. 

Specials skills needed: Outfitter/guides j:>rovide the skills and eglJJpment needed 

..... to::safe.ly:camp .. in.bear::countrycandcminimize:impacts::todbecpbysical::and::social ... 

environment. 

Safety: Guided camping trips typically involve spending two to five nights 

sleeping and travelling in remote areas where there is a chance of encountering 

a bear. In addition, outfitter/guides currently authorized to camp on KMRD do so 

in conjunction with sea kayaking, which to be done safely requires a moderate 

level of skills and ability. 

Wilderness dependence: All guided camping currently takes place in MFNMW. 

Floatplane noise and visual sightings, as well as boat traffic, decrease 

substantially during the evening and early morning. Spending the night camping 

in MFNMW provides an opportunity to experience solitude and primitive forms of 

recreation. 

Resource Effects: Popular campsites are used by the guided and unguided 

public, and commercial use is generally low. However, there are very few 

campsites available in some areas due to the steep topography. Concentrated 

use has resulted in noticeable impacts to vegetation and soil at some locations. 

The possibilty of competition for limited sites, and conflicts between the guided 

and unguided public, also exists. 

Special management objectives: Outfitter/guides provide opportunities for public 

use, enjoyment, and understanding of the wilderness, through experiences that 

depend upon a primitive setting and are consistent with management objectives 

for wilderness. In addition, they assist the Forest Service in teaching the public 

about Leave No Trace skills, which minimize camping impacts, and promoting 

the development of a outdoor ethic. 

Determination of need: Outfitter/guides provide access to camping opportunities 

that would otherwise be unavailable to many members of the general public 

because of the high level of knowledge, skills, and equipment needed to safely 

conduct a remote trip. Outfitter/guides also help the Forest Service meet special 

management objectives by providing an opportunity for the public to use, enjoy, 

and understand the wilderness through experiences that depend on a wilderness 

setting and are consistent with the management of an area as wilderness. 

29 

__________________________________________________________ Draft Environmental Impact Statement

Camping 

Two outfitter/guides were authorized to camp in 2007. In 2004 and 2005, there 

were only three locations (Checats Cove, Punchbowl, and Walker Cove) where 

guided camping activities occurred, and all three were inside MFNMW. 

Authorized use in 2007 was 80 service days. An average of 60 clients per year 

used these three locations between 2004 and 2005. 

Specials skills needed: Outfitter/guides j:>rovide the skills and eglJJpment needed 

..... to::safe.ly:camp .. in.bear::countrycandcminimize:impacts::todbecpbysical::and::social ... 

environment. 

Safety: Guided camping trips typically involve spending two to five nights 

sleeping and travelling in remote areas where there is a chance of encountering 

a bear. In addition, outfitter/guides currently authorized to camp on KMRD do so 

in conjunction with sea kayaking, which to be done safely requires a moderate 

level of skills and ability. 

Wilderness dependence: All guided camping currently takes place in MFNMW. 

Floatplane noise and visual sightings, as well as boat traffic, decrease 

substantially during the evening and early morning. Spending the night camping 

in MFNMW provides an opportunity to experience solitude and primitive forms of 

recreation. 

Resource Effects: Popular campsites are used by the guided and unguided 

public, and commercial use is generally low. However, there are very few 

campsites available in some areas due to the steep topography. Concentrated 

use has resulted in noticeable impacts to vegetation and soil at some locations. 

The possibilty of competition for limited sites, and conflicts between the guided 

and unguided public, also exists. 

Special management objectives: Outfitter/guides provide opportunities for public 

use, enjoyment, and understanding of the wilderness, through experiences that 

depend upon a primitive setting and are consistent with management objectives 

for wilderness. In addition, they assist the Forest Service in teaching the public 

about Leave No Trace skills, which minimize camping impacts, and promoting 

the development of a outdoor ethic. 

Determination of need: Outfitter/guides provide access to camping opportunities 

that would otherwise be unavailable to many mernbers of the general public 

because of the high level of knowledge, skills, and equipment needed to safely 

conduct a remote trip. Outfitter/guides also help the Forest Service meet special 

management objectives by providing an opportunity for the public to use, enjoy, 

and understand the wilderness through experiences that depend on a wilderness 

setting and are consistent with the management of an area as wilderness. 

29 
Therefore, there is a need for guided camping in the wilderness and nonwilderness portions of KMRD. 

30 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Therefore, there is a need for guided camping in the wilderness and nonwilderness portions of KMRD. 

30 
Road-Based Nature Tours 

There were five outfitter/guides authorized to provide road-based tours in 2007. 

The total authorized use for this activity was 4,796 service days. Actual use was 

986 service days. This activity category includes sightseeing, general wildlife 

viewing, hiking, and other related activities that originate from the Ketchikan road 

system. 

Special skills needed: These activities do not require special skills, although 

...... gttide.s .. clo ~[Ovide leeal:lm.ewle.dge:as.o.l1Hler:adal1Ba;:8ister:y-;::rli3.e=r:slataiirtemi·:~~-·------­

that members of the public may not know. 

Access: The guided and unguided public access road-based hiking opportunities 

via motor vehicle on Forest Service roads. 

Safety: Safety concems are less than other activities with the primary hazards 

being a slip or trip or vehicular accident. Since the activities occur along the road 

system, emergency assistance is readily available. 

Wildemess dependence: This activity is not applicable to MFNMW. 

Resource effects: Because use is primarily along developed roads and trails, 

impacts to soil, vegetation, and water resources are minimized. There is, 

however, a potential for social conflicts between guided and unguided groups, 

particularly in popular locations such as the Ward Creek Trail. An environmental 

assessment for commercial use of trails in Ketchikan (USDA 2005) included 

mitigation measures, such as limits on group size, vehicle size, and the timing of 

the use, to minimize this type of conflicts. 

Special management objectives: Road-based nature tours provide opportunities 

for special populations, including the disabled and the elderly, to access certain 

areas and to participate in recreational and educational activities. They also offer 

opportunities to visit NFS lands for people who may be uncomfortable flying or 

boating to more remote areas. In addition, road-based tours are generally less 

expensive than those that take place at more remote areas and provide 

opportunities to lower income groups. 

Determination of need: Outfitter/guides provide opportunities for special 

populations, including the disabled and the elderly, to access the forest and 

participate in recreational and educational activities at a lower cost than other 

types of guided activities available on the KMRD. Outfitter/guides also provide 

information about forest resources to many members of the public,. There is 

therefore a public need for road-based nature tours on the non-wildemess 

portions of the district. 

31 

__________________________________________________________ Draft Environmental Impact Statement

Road-Based Nature Tours 

There were five outfitter/guides authorized to provide road-based tours in 2007. 

The total authorized use for this activity was 4,796 service days. Actual use was 

986 service days. This activity category includes sightseeing, general wildlife 

viewing, hiking, and other related activities that originate from the Ketchikan road 

system. 

Special skills needed: These activities do not require special skills, although 

...... gttide.s .. clo ~[Ovide leeal:lm.ewle.dge:as.o.l1Hler:adal1Ba;:8ister:y-;::rli3.e=r:slatailliemi·:~~-··-·---­

that members of the public may not know. 

Access: The guided and unguided public access road-based hiking opportunities 

via motor vehicle on Forest Service roads. . 

Safety: Safety concems are less than other activities with the primary hazards 

being a slip or trip or vehicular accident. Since the activities occur along the road 

system, emergency assistance is readily available. 

Wilderness dependence: This activity is not applicable to MFNMW. 

Resource effects: Because use is primarily along developed roads and trails, 

impacts to soil, vegetation, and water resources are minimized. There is, 

however, a potential for social conflicts between guided and unguided groups, 

particularly in popular locations such as the Ward Creek Trail. An environmental 

assessment for commercial use of trails in Ketchikan (USDA 2005) included 

mitigation measures, such as limits on group size, vehicle size, and the timing of 

the use, to minimize this type of conflicts. 

Special management objectives: Road-based nature tours provide opportunities 

for special populations, including the disabled and the elderly, to access certain 

areas and to participate in recreational and educational activities. They also offer 

opportunities to visit NFS lands for people who may be uncomfortable flying or 

boating to more remote areas. In addition, road-based tours are generally less 

expensive than those that take place at more remote areas and provide 

opportunities to lower income groups. 

Determination of need: Outfitter/guides provide opportunities for special 

populations, including the disabled and the elderly, to access the forest and 

participate in recreational and educational activities at a lower cost than other 

types of guided activities available on the KMRD. Outfitter/guides also provide 

information about forest resources to many members of the public,. There is 

therefore a public need for road-based nature tours on the non-wildemess 

portions of the district. 

31 
Institutional Use (e.g. religious, fraternal, youth, educational groups) 

In addition to the need for outfitter/guide activities previously discussed, the 

current composition of outfitter/guides operating in the non-wilderness and the 

wilderness area does not include activities that provide experiential learning 

and/or educational curriculum specific to the area being visited. These types of 

outfitter/guides could fall under any of the activities analyzed in this assessment 

They can consist of: 

profit operations (e.g. NOLS, Outward Bound) 

• Institutional outfitters (non-school) such as religious, conservation, 

environmental, youth, fraternal, service, military, county and city outdoor 

recreation programs and social groups 

• Schools, colleges or universities, institutes, or groups operating under 

their umbrella 

Frorn an agency standpoint, these types of operations also rnake valuable 

contributions to the Forest Service mission and there is a need for these 

organizations. Any future allocations of outfitter/guide use should consider 

retaining a portion of the allocation in the event that outfitter/guides for 

institutional or special populations wish to operate. 

There is also a need for special populations, such as mentally and physically 

handicapped and older people, to have opportunities to use and benefit from 

guided activities on NFS lands. The use of motorized or mechanical equipment 

or structures that are not compatible wth wilderness should not be allowed in 

MFNMW to support these special populations. 

32 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Institutional Use (e.g. religious, fraternal, youth, educational groups) 

In addition to the need for outfitter/guide activities previously discussed, the 

current composition of outfitter/guides operating in the non-wilderness and the 

wilderness area does not include activities that provide experiential learning 

and/or educational curriculum specific to the area being visited. These types of 

outfitter/guides could fall under any of the activities analyzed in this assessment 

They can consist of: 

profit operations (e.g. NOLS, Outward Bound) 

• Institutional outfitters (non-school) such as religious, conservation, 

environmental, youth, fraternal, service, military, county and city outdoor 

recreation programs and social groups 

• Schools, colleges or universities, institutes, or groups operating under 

their umbrella 

Frorn an agency standpoint, these types of operations also rnake valuable 

contributions to the Forest Service mission and there is a need for these 

organizations. Any future allocations of outfitter/guide use should consider 

retaining a portion of the allocation in the event that outfitter/guides for 

institutional or special populations wish to operate. 

There is also a need for special populations, such as mentally and physically 

handicapped and older people, to have opportunities to use and benefit from 

guided activities on NFS lands. The use of motorized or mechanical equipment 

or structures that are not compatible wth wilderness should not be allowed in 

MFNMW to support these special populations. 

32 
Summary 

This needs assessment was developed to determine the public need for various 

outfitter/guide activities on the wilde mess and non-wildemess portions of the 

Ketchikan-Misty Ranger District. Public need is identified for activities that are 

required in order to meet the Forest Service's mission to manage and protect 

resources, provide for public safety, and provide high-quality public recreation 

services. The following criteria were used to determine need: . 

• Required skills 

-. ___ . __ w_ .. '" Access. __ _ 

• Safety 

• Special management objectives (e.g. to provide opportunities for public 

use and enjoyment, to manage for sustainable fish and wildlife 

populations) 

• Dependence on wildemess 

• Resource effects (biophysical and social/experiential) 

The needs assessment determinations for each activity analyzed are presented 

in Table 8. 

T a bl e 8 S ummary 0 f nee ddt s e ermma r Ions 

No Need Wilderness Non-wilderness 

Activity Need Need 

Brown bear hunting X X 

Mountain goat hunting X X 

Black bear hunting X X 

Deer hunting X 

Floatplane landing tours X X 

Freshwater fishing X X 

Remote setting nature tours X X 

Wildlife viewing at developed sites N/A X 

Camping X X 

Road-based nature tours N/A X 

Institutional Use . X X 

It is important to note that a determination of need does not imply that a 

commercial activity is needed, or will be authorized, for all wildemess and nonwilde mess portions of the District. This document does not address the effects 

(e.g. social, physical) of existing or proposed commercial uses. Decisions 

regarding the appropriate types and levels of commercial use in particular areas 

will be accomplished in compliance with the National Environmental Policy Act 

(NEPA). 

33 

__________________________________________________________ Draft Environmental Impact Statement

Summary 

This needs assessment was developed to determine the public need for various 

outfitter/guide activities on the wilde mess and non-wildemess portions of the 

Ketchikan-Misty Ranger District. Public need is identified for activities that are 

required in order to meet the Forest Service's mission to manage and protect 

resources, provide for public safety, and provide high-quality public recreation 

services. The following criteria were used to determine need: . 

• Required skills 

-. ___ . __ w_ .. '" ~ccess, __ _ 

• Safety 

• Special management objectives (e.g. to provide opportunities for public 

use and enjoyment, to manage for sustainable fish and wildlife 

populations) 

• Dependence on wildemess 

• Resource effects (biophysical and social/experiential) 

The needs assessment determinations for each activity analyzed are presented 

in Table 8. 

T a bl e 8 S ummary 0 f nee ddt s e ermma r Ions 

No Need Wilderness Non-wilderness 

Activity Need Need 

Brown bear hunting X X 

Mountain goat hunting X X 

Black bear hunting X X 

Deer hunting X 

Floatplane landing tours X X 

Freshwater fishing X X 

Remote setting nature tours X X 

Wildlife viewing at developed sites N/A X 

Camping X X 

Road-based nature tours N/A X 

Institutional Use . X X 

It is important to note that a determination of need does not imply that a 

commercial activity is needed, or will be authorized, for all wildemess and nonwilde mess portions of the District. This document does not address the effects 

(e.g. social, physical) of existing or proposed commercial uses. Decisions 

regarding the appropriate types and levels of commercial use in particular areas 

will be accomplished in compliance with the National Environmental Policy Act 

(NEPA). 

33 
nn D Kolund 

Lynn D.Kolund 

District Ranger 

34 

Se tember 12 200B 

Date 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

nn D Kolund 

Lynn D.Kolund 

District Ranger 

34 

Se tember 12 200B 

Date 
Citations 

Alaska Department of Fish and Game. 2002a. Mountain Goat Management 

Report, July 1, 1 999-June 30, 2001. 

Alaska Department of Fish and Game. 2002b. Black Bear Management Report, 

July 1, 1 998-June 30, 2001. 

--=====::::::A~la~s~k:::a=D~eRartment of Fish and Game. 2004. Mountain Goat Management 

- Repnrr,-jolyl, 2001-June30, 2003. 

Alaska Department of Fish and Game. 2005. Brown Bear Management Report 

of Survey-Inventory Activities, July 1, 2002-June 30, 2004. 

www.visit-ketchikan.com/AboutlCruiseShipStatistics/tabid/87/Default.aspx. 

Accessed on 9/13/07. 

Foster, B. and E. Rahs. 1983. Mountain goat response to hydroelectric 

exploration in northwestem British Columbia. Environmental Management. 

7:189-197. 

Frid, A. 2003. Dall's sheep responses to overflights by helicopter and fixed wing 

aircraft. Biological Conservation 110 (2003) 387-399. 

Gimblett, R. 2005. Validating the Recreation Visitation Model for Misty Fjords 

National Monument: Balancing Increased Visitor Use and Wilde mess Character. 

University of Arizona, School of Natural Resources. 

Goldstein. M., A. Poe, E. Cooper, D. Youkey, B. Brown and T. McDonald. 2005. 

Mountain goat response to helicopter overflights in Alaska. Wildlife Society 

Bulletin. 33(2)388-399. 

USDA Forest Service. 2002. Joint Management Strategy 

USDA Forest Service. 2003. meeting notes 

USDA Forest Service. 2005. Environmental Assessment for Commercial Uses 

on Ketchikan Trails. R10-MB-534. 

USDA Forest Service. 2007. Determination of Need and Extent of Commercial 

Uses within Wilderness Areas on the Tongass National Forest 

USDA Forest Service. 2008. Record of Decision, Final Environmental Impact 

Statement TLRMP Amendment. 

35 

__________________________________________________________ Draft Environmental Impact Statement

Citations 

Alaska Department of Fish and Game. 2002a. Mountain Goat Management 

Report, July 1, 1 999-June 30, 2001. 

Alaska Department of Fish and Game. 2002b. Black Bear Management Report, 

July 1, 1 998-June 30, 2001. 

______ oAw;la"'s"'k""a"-'D,L2e.Rartment of Fish and Game. 2004. Mountain Goat Management 

.-~ ... - ···~~Repnrt~-jolyl, 2001-June30, 2003. 

Alaska Department of Fish and Game. 2005. Brown Bear Management Report 

of Survey-Inventory Activities, July 1, 2002-June 30, 2004. 

www.visit-ketchikan.com/AboutlCruiseShipStatistics/tabid/87/Default.aspx. 

Accessed on 9/13/07. 

Foster, B. and E. Rahs. 1983. Mountain goat response to hydroelectric 

exploration in northwestem British Columbia. Environmental Management. 

7:189~197. 

Frid, A. 2003. Dall's sheep responses to overflights by helicopter and fixed wing 

aircraft. Biological Conservation 110 (2003) 387-399. 

Gimblett, R. 2005. Validating the Recreation Visitation Model for Misty Fjords 

National Monument: Balancing Increased Visitor Use and Wilde mess Character. 

University of Arizona, School of Natural Resources. 

Goldstein. M., A. Poe, E. Cooper, D. Youkey, B. Brown and T. McDonald. 2005. 

Mountain goat response to helicopter overflights in Alaska. Wildlife Society 

Bulletin. 33(2)388-399. 

USDA Forest Service. 2002. Joint Management Strategy 

USDA Forest Service. 2003. meeting notes 

USDA Forest Service. 2005. Environmental Assessment for Commercial Uses 

on Ketchikan Trails. R10-MB-534. 

USDA Forest Service. 2007. Determination of Need and Extent of Commercial 

Uses within Wilderness Areas on the Tongass National Forest 

USDA Forest Service. 2008. Record of Decision, Final Environmental Impact 

Statement TLRMP Amendment. 

35 
I 

I 

I 

Appendix A 

Wilderness use by fee activity (2005)* III 

BB- BB- BlB- BlB- MG- MG- WFSl~ IRSNT 

Pack 

Wilderness C D C D D-C D-D D C C WSG Camp FF Ck Outfit Trans Total 

Kootznoowoo 4B 33B 2 74 247 643 I 11,3B2 37B 6 2 3,120 

South Prince of Wales 13 27 ~ I 239 2B2 

Pleasant -lemes u rie rI I Inian 5 I 154 159 

West Chichaqof 6 10B 1 1 2 B 103 I I 331 560 

Chuck River 2 2B 2 I 

I 365 397 I 

Tracy Arm 1 41 66 72 , 

I I 207 4 391 

Endicott River I I 0 I 

Misty Fiords 11 24 5B 17 93 139 B.46~ I 129 B,93B I 

Kuiu 24 146 I I 3 2 175 

Petersburq Creek 6 1 i I 7 

Tebenkof 56 44B 7 I I 23 534 ! 

Coronation Island I I 9 9 I 

Karla River 1 1 17 i I B 27 I 

Maurelle Islands 7 I I 7 

Warren Island I I 0 I 

South Baranof 52 2 2 4B 5 40 331 BI I 132 620 I 

I 

South Etolin 2,137 Iii 6 2,143 

Stikine-LeConte 3 5 1 B B 772 44 1114,240 142 19 5,242 

Russell Fiord 64 18 12 1 35 III 48 17B 

129 562 21 202 7 79 122 42 1 2 3,968 1,347 8.47BI 117,276 378 154 21 22,7B9 

i 

I 

I 

Fee Activity Key 

BB-C Brown bear huntin9 (camping) WSG Waterfowl, small game hunting 

BB-D Brown bear hunting (day use) Camp Camping 

BLB-C Black Bear hunting (camping) FF Freshwater fishing 

BLB-D Black bear hunting (day use FSLT Flightseeing landing tours 

D-C Deer hunting (camping) RSNT Remote setting nature tours 

D-D Deer hunting (day use) Pack CkRemote setting wildlife viewing at developed 

sites 

MG-C Mountain goat hunting (camping) Outfit Outfitting 

MG-D Mountain goat hunting (day use) Trans Transporting 

W-C Wolf hunting (camping) 

I 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

I 

I 

I 

I 

! 

Appendix A ! 

I 

Wilderness use by fee activity (2005)* III 

BB- BB- BlB- BlB- MG- MG- W- I 

IRSNT 

Pack 

Wilderness C D C D D-C D-D D C C WSG Camp FF FSlli Ck Outfit Trans Total 

Kootznoowoo 4B 33B 2 74 247 643 I 11,3B2 37B 6 2 3,120 

South Prince of Wales 13 27 ~ I 239 2B2 I 

Pleasant -lemes u rie rI I Inian 5 I 154 159 

West Chichagof 6 10B 1 1 2 B 103 I I 331 560 

Chuck River 2 2B 2 I 365 397 I 

Tracy Arm 1 41 66 72 I 207 4 391 

Endicott River I 0 

Misty Fiords 11 24 5B 17 93 139 B,46~ I 129 B,93B I 

Kuiu 24 146 I I 3 2 175 

Petersburg Creek 6 1 i 7 

Tebenkof 56 44B 7 I 

I 23 534 

Coronation Island i 9 9 

Karla River 1 1 17 i I B 27 I 

Maurelle Islands 7 I I 7 

Warren Island I I 0 I 

South Baranof 52 2 2 4B 5 40 331 BI I 132 620 I 

I 

South Etolin 2,137 Iii 6 2,143 

Stikine-LeConte 3 5 1 B B 772 44 1114,240 142 19 5,242 

Russell Fiord 64 18 12 1 35 III 48 17B 

129 562 21 202 7 79 122 42 1 2 3,968 1,347 8.47BI 117,276 378 154 21 22,7B9 I 

I 

Fee Activity Key 

BB-C Brown bear huntin9 (camping) WSG Waterfowl, small game hunting 

BB-D Brown bear hunting (day use) Camp Camping 

BLB-C Black Bear hunting (camping) FF Freshwater fishing 

BLB-D Black bear hunting (day use FSLT Flightseeing landing tours 

D-C Deer hunting (camping) RSNT Remote setting nature tours 

D-D Deer hunting (day use) Pack CkRemote setting wildlife viewing at developed 

sites 

MG-C Mountain goat hunting (camping) Outfit Outfitting 

MG-D Mountain goat hunting (day use) Trans Transporting 

W-C Wolf hunting (camping) 

I 
Appendix 8 - Agency Management Direction 

Management direction regarding needs assessments stems from a variety of 

sources. A summary of the key sources and their most relevant sections are 

presented in this appendix. 

Laws 

-----+he-Wilderness-Act-of-1964---- . 

--.----- ·"··--Section 4((;)01 the Wilderness Act generally prohibits commercial enterpris~" 

(that is, the development of a "for profit" business in these areas). But, Section 

4(d) (6) provides an exception, saying; "commercial services may be performed 

within the Wildemess area . .. to the extent necessary for activities which are 

proper for realizing the recreation or other Wildemess purposes of the areas." 

Alaska National Interest Lands Conservation Act of 1980 (ANILCA) 

As noted, ANILCA is the enabling legislation for all congressionally designated 

wildemess areas on the forest. The Tongass Timber Reform Act of 1990 

amended ANILCA to add additional wildemess areas to the Forest. 

The only specific reference to commercial use addressed in ANILCA is in Section 

1307. Under this section, permit holders who adequately provided commercial 

services prior to 1/1/79, may be authorized to continue these services if they are 

consistent with wildemess purposes. A preference is given to Native 

Corporations and local residents for visitor services in wildemess areas (sport 

fishing and hunting activities are excluded from this preference). 

Forest Plan 

Key relevant sections of the Forest Plan as it relates to the need for 

outfitter/guide activities can be found in the Recreation and Tourism section (p. 4-

34 through 4-52) and include: 

Recreation Resource Planning 

1. Determine the appropriate role of the National Forest System lands in 

providing natural resource-based recreation opportunities, sites, facilities, and 

experiences. Within the context of National policy, cooperate and coordinate with 

National, state, and local agencies in providing a balance of outdoor recreation 

opportunities throughout Southeast Alaska. 

37 

__________________________________________________________ Draft Environmental Impact Statement

Appendix 8 - Agency Management Direction 

Management direction regarding needs assessments stems from a variety of 

sources. A summary of the key sources and their most relevant sections are 

presented in this appendix. 

Laws 

------+he-WiJderness-Act-of-1964-----· 

------ ·"··--Section 4((;)01 the Wilderness Act generally prohibits commercial enterpris~"---·"--­

(that is, the development of a "for profit" business in these areas). But, Section 

4(d) (6) provides an exception, saying; "commercial services may be performed 

within the Wildemess area . .. to the extent necessary for activities which are 

proper for realizing the recreation or other Wildemess purposes of the areas." 

Alaska National Interest Lands Conservation Act of 1980 (ANILCA) 

As noted, ANILCA is the enabling legislation for all congressionally designated 

wildemess areas on the forest. The Tongass Timber Reform Act of 1990 

amended ANILCA to add additional wildemess areas to the Forest. 

The only specific reference to commercial use addressed in ANILCA is in Section 

1307. Under this section, permit holders who adequately provided commercial 

services prior to 1/1/79, may be authorized to continue these services if they are 

consistent with wildemess purposes. A preference is given to Native 

Corporations and local residents for visitor services in wildemess areas (sport 

fishing and hunting activities are excluded from this preference). 

Forest Plan 

Key relevant sections of the Forest Plan as it relates to the need for 

outfitter/guide activities can be found in the Recreation and Tourism section (p. 4-

34 through 4-52) and include: 

Recreation Resource Planning 

1. Determine the appropriate role of the National Forest System lands in 

providing natural resource-based recreation opportunities, sites, facilities, and 

experiences. Within the context of National policy, cooperate and coordinate with 

National, state, and local agencies in providing a balance of outdoor recreation 

opportunities throughout Southeast Alaska. 

37 
Recreation Use Administration 

Commercial Recreation Opportunities 

1. Work with recreation service partners and the tourism industry in identifying 

and developing services and opportunities. Recreation service partners provide 

services and opportunities that supplement the use and enjoyment of the national 

forests by a variety of people. 

a)Jdeotify_opportunities_for_commercial_recreation_use,services,and!--------

---------eevelol"ments. 

··--·-------btFacilitate-aathorizin-trtommerclal recreation uss;5eriirces-,-ana-----··---····---··-····-· 

developments by: 

(1) Authorizing commercial recreational developments and services 

where there is a public need, and no private lands are available 

or suitable for development. Refer to each Land Use 

Designatjon management prescription to determine its 

appropriateness for development. 

(2) Managing recreation special uses in accordance with the 

direction in LAND 122 - Special-Use Authorizations (items A.1-

13 apply to recreation special uses), and outfitter/guide services 

in this section. 

(3) Working with recreation service partners to provide agency 

identity, customer information and programs, natural resource 

education, and to instill a land stewardship ethic. 

Public Outfitter/Guide services 

a) Authorize the services of qualified outfitters and guides to the public 

where the need for the service has been identified and is compatible 

with the objectives and management direction of the affected Land Use 

Designations. The services of outfitters and guides should facilitate the 

use, enjoyment, understanding, and appreciation of National Forest 

recreation settings. 

b) Manage outfitter and guide services as partnerships with the Forest 

Service, as a way to nurture and encourage assistance and support for 

attaining the objectives of the Land Use Designation, and to assist in 

increased public understanding and appreciation of the Forest 

Service's mission and goals. 

c) Encourage skilled and experienced individuals, organizations, and 

companies to conduct outfitting and guiding activities in a manner that 

assures National Forest visitors receive quality services. 

d) Administer Outfitter/Guide special-use authorizations in accordance 

with the direction in FSM 2720, FSH 2709.11 and Regional 

Supplements. 

(1) Outfitting and guiding operations should not require permanent 

improvements occupying National Forest System lands. 

38 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

Recreation Use Administration 

Commercial Recreation Opportunities 

1. Work with recreation service partners and the tourism industry in identifying 

and developing services and opportunities. Recreation service partners provide 

services and opportunities that supplement the use and enjoyment of the national 

forests by a variety of people. 

a)Jdeotify_opportunities_for_commercial_recreation_use,services,and--------

---------eevelol"ments . .. --.-. ··-··-----bj-Facilitate-a:athorizin-trtommercrarrecreati6n uss;5eriirces-,-ana-----··---·-··---·--····-· 

developments by: 

(1) Authorizing commercial recreational developments and services 

where there is a public need, and no private lands are available 

or suitable for development. Refer to each Land Use 

Designatjon management prescription to determine its 

appropriateness for development. 

(2) Managing recreation special uses in accordance with the 

direction in LAND 122 - Special-Use Authorizations (items A.1-

13 apply to recreation special uses), and outfitter/guide services 

in this section. 

(3) Working with recreation service partners to provide agency 

identity, customer information and programs, natural resource 

education, and to instill a land stewardship ethic. 

Public Outfitter/Guide services 

a) Authorize the services of qualified outfitters and guides to the public 

where the need for the service has been identified and is compatible 

with the objectives and management direction of the affected Land Use 

Designations. The services of outfitters and guides should facilitate the 

use, enjoyment, understanding, and appreciation of National Forest 

recreation settings. 

b) Manage outfitter and guide services as partnerships with the Forest 

Service, as a way to nurture and encourage assistance and support for 

attaining the objectives of the Land Use Designation, and to assist in 

increased public understanding and appreciation of the Forest 

Service's mission and goals. 

c) Encourage skilled and experienced individuals, organizations, and 

companies to conduct outfitting and guiding activities in a manner that 

assures National Forest visitors receive quality services. 

d) Administer Outfitter/Guide special-use authorizations in accordance 

with the direction in FSM 2720, FSH 2709.11 and Regional 

Supplements. 

(1) Outfitting and guiding operations should not require permanent 

improvements occupying National Forest System lands. 

38 
Encourage operations which require only temporary facilities, 

easily removed at the end of the use season. 

(2) Authorize outfitter/guide operations on the basis of the following 

criteria: 

(a) The affected ecosystem(s) have the capability to 

accommodate the expected kinds of activities and amounts 

of use without degradation of ecosystem composition and 

structure. 

----,(b)-~xistiRg·or-preJ3osed·oJ3erations-and·activities-are 

--------------a:appl Opl iate fm liTe-spe'ciftc-Fl(:)!:lsettlngs wifi1illffje tand 

····-Ose Deslgnafion.------.. ····-··---···----···..· .. .. -.---

(c) Adverse impacts to popular or highly-valued local areas 

with outfitter/guide operations are minimized. 

(d) There is a demonstrated public need for the services to 

be offered and/or the services will enhance the objectives of 

the Land Use Designation. 

(e) The operations can be carried out in a manner that is 

compatible with existing or expected use by the non-guided 

public. 

(f) Adverse impacts to subsistence users are minimized. 

Forest Service Objectives 

Outfitter/guides must also meet agency objectives. These objectives are 

specifically outlined in the Forest Service Manuals (FSMs) and Forest Service 

Handbooks (FSHs). 

The following must be considered when reviewing written requests for use of 

National Forest System lands (FSM 2703.1): 

1. Analysis of the proposed use's conformance with the Forest land and 

resource management plan; 

2. Environmental analysis of the project proposal; 

3. Analysis of the need to use National Forest System lands; 

4. Analysis of the appropriateness of the use on National Forest System 

lands. 

Recreation objectives, stated in FSM 2302, that apply to outfitter/guides in 

general are: 

1. To provide nonurbanized outdoor recreation opportunities in natural 

appearing forest and rangeland settings; 

39 

__________________________________________________________ Draft Environmental Impact Statement

Encourage operations which require only temporary facilities, 

easily removed at the end of the use season. 

(2) Authorize outfitter/guide operations on the basis of the following 

criteria: 

(a) The affected ecosystem(s) have the capability to 

accommodate the expected kinds of activities and amounts 

of use without degradation of ecosystem composition and 

structure. 

----(b)-~xistiRg·or-preJ3osed·oJ3erations-and·activities-are 

--------------a:appl Opl iale fOl llTe-spe'ciftc-Fl(:)!:lsettlngs wifi1illffje tand 

····-UseDeslgnafion.-----············--···----·· .... ..... .... --.. -

(c) Adverse impacts to popular or highly-valued local areas 

with outfitter/guide operations are minimized. 

(d) There is a demonstrated public need for the services to 

be offered and/or the services will enhance the objectives of 

the Land Use Designation. 

(e) The operations can be carried out in a manner that is 

compatible with existing or expected use by the non-guided 

public. 

(f) Adverse impacts to subsistence users are minimized. 

Forest Service Objectives 

Outfitter/guides must also meet agency objectives. These objectives are 

specifically outlined in the Forest Service Manuals (FSMs) and Forest Service 

Handbooks (FSHs). 

The following must be considered when reviewing written requests for use of 

National Forest System lands (FSM 2703.1): 

1. Analysis of the proposed use's conformance with the Forest land and 

resource management plan; 

2. Environmental analysis of the project proposal; 

3. Analysis of the need to use National Forest System lands; 

4. Analysis of the appropriateness of the use on National Forest System 

lands. 

Recreation objectives, stated in FSM 2302, that apply to outfitter/guides in 

general are: 

1. To provide nonurbanized outdoor recreation opportunities in natural 

appearing forest and rangeland settings; 

39 
2. To protect the long-term public interest by maintaining and enhancing 

open space options, public accessibility, and cultural, wilderness, visual, 

and natural resource recreation values; and 

5. To provide outdoor recreation opportunities and activities that: 

a. Encourage study and enjoyment of nature, 

b. Highlight the importance of conservation; 

c. provide scenic and visual enjoyment; and 

. ___ d.JostiILappmciatioo.oUhe_nation's_histoPj,-culturaI-resources,-and---.-... ---.---

---'----------~tr-aEiitieAal-valtles&.,__--------'--------------- . _______ . ____ . _______ . _____ .. _ ..... _. ______ . __ ._ ............................••......... 

Forest Service special use objectives specifically for outfitting and guiding, 

provided in FSH 2709.11, Chapter 40, Section 41.53a states: 

1. As identified in forest land and resource management plans, provide 

for commercial outfitting and guiding services that address concerns of 

public health and safety and that foster small businesses. 

2. Encourage skilled and experienced individuals and entities to conduct 

outfitting and guiding activities in a manner that protects environmental 

resources and ensures that National Forest visitors receive high quality 

services. 

Forest Service Special Use policy for outfitting and guiding provided in FSH 

2709.11, Chapter 40, Section 41.53b states: 

1. Authorize only those outfitting and guiding activities that are consistent 

with forest land and resource management plans. 

3. Do not authorize any development, improvements, or installations in 

wilderness on the National Forest System for the purpose of 

convenience to the holder or the holder's clients. 

Forest Service policy addressing outfitter and guide operations in wilderness 

found in FSM 2323.13g states that managers should: 

Address the need for and role of outfitters in the forest plan. The·plan must 

address the type, number, and amount of recreation use that is to be 

allocated to outfitters. Ensure that outfitters provide their service to the 

public in a manner that is compatible with use by other wilderness visitors 

and that maintains the wilderness resource. 

Objectives for wilderness management provided in FSM 2323.11 are to: 

40 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

2. To protect the long-term public interest by maintaining and enhancing 

open space options, public accessibility, and cultural, wilderness, visual, 

and natural resource recreation values; and 

5. To provide outdoor recreation opportunities and activities that: 

a. Encourage study and enjoyment of nature, 

b. Highlight the importance of conservation; 

c. provide scenic and visual enjoyment; and 

____ d.JostiILappmciatioo.oUhe.nation's.histoPj,.culturaI.resources,-and--.----_._._---

--'----------~tr-aEiitieAal-valtle&s.,__--------'--------------

Forest Service special use objectives specifically for outfitting and guiding, 

provided in FSH 2709.11, Chapter 40, Section 41.53a states: 

1. As identified in forest land and resource management plans, provide 

for commercial outfitting and guiding services that address concerns of 

public health and safety and that foster small businesses. 

2. Encourage skilled and experienced individuals and entities to conduct 

outfitting and guiding activities in a manner that protects environmental 

resources and ensures that National Forest visitors receive high quality 

services. 

Forest Service Special Use policy for outfitting and guiding provided in FSH 

2709.11, Chapter 40, Section 41.53b states: 

1. Authorize only those outfitting and guiding activities that are consistent 

with forest land and resource management plans. 

3. Do not authorize any development, improvements, or installations in 

wilderness on the National Forest System for the purpose of 

convenience to the holder or the holder's clients. 

Forest Service policy addressing outfitter and guide operations in wilderness 

found in FSM 2323.13g states that managers should: 

Address the need for and role of outfitters in the forest plan. The'plan must 

address the type, number, and amount of recreation use that is to be 

allocated to outfitters. Ensure that outfitters provide their service to the 

public in a manner that is compatible with use by other wilderness visitors 

and that maintains the wilderness resource. 

Objectives for wilderness management provided in FSM 2323.11 are to: 

40 
1. Provide, consistent with management of the area as wilderness, 

opportunities for public use, enjoyment, and understanding of the 

wilderness, through experiences that depend upon a wilderness setting. 

2. Provide outstanding opportunities for solitude or a primitive and 

unconfined type of recreation. Forest Service policy addressing recreation 

management in Wilderness found in FSM 2323.12 states: 

______ l._Maximize_visitoLfIeedom_withinJhe_wilderness_Minirnize-directcontrols---

--------aa!R€Hestfietien&.---Apply-eentr-eIs-eAly-wMerrtMey-ariressential-fer-J:tmteetifln------

- -------------- --·ofth-e-wildern-e-ss-re-s-ou-rce-and-afierirrdiFecnneasuresliavenailei"d:·------------------

2. Use information, interpretation, and education as the primary tools for 

management of wilderness visitors. 

3. Manage for recreation activities that are dependent on the wilderness 

environment so that a minimum of adaptations within wilderness are 

necessary to accommodate recreation. 

4. Consistent with management as wilderness, permit outfitter/guide 

operations where they are necessary to help segments of the public use 

and enjoy wilderness areas for recreational or other wilderness purposes. 

41 

__________________________________________________________ Draft Environmental Impact Statement

1. Provide, consistent with management of the area as wilderness, 

opportunities for public use, enjoyment, and understanding of the 

wilderness, through experiences that depend upon a wilderness setting. 

2. Provide outstanding opportunities for solitude or a primitive and 

unconfined type of recreation. Forest Service policy addressing recreation 

management in Wilderness found in FSM 2323.12 states: 

______ l._Maximize_visitoLfIeedom_within_the_wilderness_Minirnize-directcontrols---

--------R-aA€l-FestfietieA&.----Apply-eefltr-eIs-eAly-wMerrtMey-ariress8fltial-fC7r-J:tmteeticn------

------------- ---ofth-e-wildern-e-ss-re-s-ou-rce-and-afierirrdiFecnneasuresliavedailerd:----------------

2. Use information, interpretation, and education as the primary tools for 

management of wilderness visitors. 

3. Manage for recreation activities that are dependent on the wilderness 

environment so that a minimum of adaptations within wilderness are 

necessary to accommodate recreation. 

4. Consistent with management as wilderness, permit outfitter/guide 

operations where they are necessary to help segments of the public use 

and enjoy wilderness areas for recreational or other wilderness purposes. 

41 
--"" 

" .-.-~- ------- -

Appendix C - Definitions 

Following are definitions for key terms used in this document and sources of the 

definitions: 

Commercial-Use- -Any-usB-or-activity_onJ'JationaLEoreslSystem_Lands_(a) ___ ----""---

-wheTe-arltmtry=or~participatiowfee"fs--ehargecl;=0rtl:r)~whefe - ------ -.---- lI1e primary purpose -is tnesale of a-good or service;a:rlcnn-- -, -----'"~--" •... "-'"-".-. 

either case, regardless of whether the use or activity is 

intended to produce a profit. (36 CFR 251.51) 

Commercial Operations which are managed as an outfitting/guiding 

Outfitter business and whose services are available to the general 

public. This category can include outdoor schools and similar 

operations, even though they may be Not For Profit 

Operations. This category is eligible for Priority Use Service 

Days. 

Guiding Providing services or assistance (such as supervision, 

protection, education, training, packing, touring, subsistence, 

interpretation, or other assistance to individuals or groups in 

their pursuit of a natural resource-based outdoor activity) for 

pecuniary remuneration or other gain. (Forest Service 

Handbook 2709.11, Section 41.53c) 

Institutional Operations which are not managed as an outfitter/guide 

Outfitters business, but which offer similar types of services where an 

(non-school) entry or participation fee, that exceeds the cost of shared 

expenses, is charged. Services are provided to members of 

the organization or to a limited constituency. Includes 

religious, conservation, environmental, youth, fraternal, 

service, military, county and city outdoor recreation programs 

and social groups. This category is not eligible for Priority Use 

Service Days. 

Institutional Operations which are not managed as an outfitting/guiding 

Outfitters business, but which offer outfitting/guiding type services 

(school) where an entry or participation fee, that exceeds the cost of 

shared expenses, is charged. Participation in programs rnay 

or may not be recognized for credit toward graduation or a 

degree. Includes schools, colleges or universities, institutes, 

or groups operating under their umbrella. Must be certified as 

an educational institution. This category is not eligible for 

Priority Use Service Days. 

42 

Ketchikan-Misty Fiords Outfitter and Guide Management Plan __________________________________________________________

--"" 

" .-.-~- ------- -

Appendix C - Definitions 

Following are definitions for key terms used in this document and sources of the 

definitions: 

-Commercial-Use- -Any-usB-or-activity_onJ'JationaLEoreslSystem_Lands_(a) ___ ----""---

1----- -.---- -wheTE,-a:n--entry=or~participatiowfee"fs--ehargecl;=0rtl:r)~whefe - -, -----'"~--" .... "-'"-".-. lI1e primary purpose -rslfiesale of a-go ocr or service;a:ricnn--

either case, regardless of whether the use or activity is 

intended to produce a profit. (36 CFR 251.51) 

Commercial Operations which are managed as an outfitting/guiding 

Outfitter business and whose services are available to the general 

public. This category can include outdoor schools and similar 

operations, even though they may be Not For Profit 

Operations. This category is eligible for Priority Use Service 

Days. 

Guiding Providing services or assistance (such as supervision, 

protection, education, training, packing, touring, subsistence, 

interpretation, or other assistance to individuals or groups in 

their pursuit of a natural resource-based outdoor activity) for 

pecuniary remuneration or other gain. (Forest Service 

Handbook 2709.11, Section 41.53c) 

Institutional Operations which are not managed as an outfitter/guide 

Outfitters business, but which offer similar types of services where an 

(non-school) entry or participation fee, that exceeds the cost of shared 

expenses, is charged. Services are provided to members of 

the organization or to a limited constituency. Includes 

religious, conservation, environmental, youth, fraternal, 

service, military, county and city outdoor recreation programs 

and social groups. This category is not eligible for Priority Use 

Service Days. 

Institutional Operations which are not managed as an outfitting/guiding 

Outfitters business, but which offer outfitting/guiding type services 

(school) where an entry or participation fee, that exceeds the cost of 

shared expenses, is charged. Participation in programs rnay 

or may not be recognized for credit toward graduation or a 

degree. Includes schools, colleges or universities, institutes, 

or groups operating under their umbrella. Must be certified as 

an educational institution. This category is not eligible for 

Priority Use Service Days. 

42 
Management A need identified by the Agency which is deemed essential, 

Need beneficial, desirable, or required for the well-being of the 

public; and in the public interest; in order to meet the intent of 

the Agency mission to provide high quality public recreation 

services, to provide for public health and safety, to provide for 

management and protection of natural resources, as well as 

attainment of wilderness goals and objectives. 

Outfitting Providing through rental or livery any saddle or pack animal, 

._-- vehicle or boat, tents or C:!'lmQ..ggar, or similacsLlI~J)lies or .. equipmeRtFfQr=,"El@uAial¥=remuRerati0n~r0.0ti1er=€laiEl=t~0[esb . .. 

"-"-.-".~ .. - ------. .".""-""-... ~,-."".,-

··ServiC:1r·Ha:n·db-oolc2709:1l,-Se·ction·<t1~53c:Y--······· ............. _--"-'"--., .. ---.. -"~-.-" 

Service Day A day or any part of a day on National Forest System lands 

for which an outfitter or guide provides goods or services, 

including transportation, to a client. (Forest Service Handbook 

2709.11, Section 37.05 

43 

__________________________________________________________ Draft Environmental Impact Statement

Management A need identified by the Agency which is deemed essential, 

Need beneficial, desirable, or required for the well-being of the 

public; and in the public interest; in order to meet the intent of 

the Agency mission to provide high quality public recreation 

services, to provide for public health and safety, to provide for 

management and protection of natural resources, as well as 

attainment of wilderness goals and objectives. 

Outfitting Providing through rental or livery any saddle or pack animal, 

._-- vehicle or boat, tents or C:!'lmQ..ggar, or similaC~LI[l[llies or .. equipmeRtFfQr=,"9@uAial¥=remuRerati0n~r0.0ti1er=€laiEl=t~0[esb . .. 

"-"-.-".~ .. - ------. .".""-""-... ~,-."".,-

··Servic1r·Ha:n·db-oolc2709:1l,-Se·ction·<t1~53cY--······· ............. _--"-'"--., .. ---.. -"~-.-" 

Service Day A day or any part of a day on National Forest System lands 

for which an outfitter or guide provides goods or services, 

including transportation, to a client. (Forest Service Handbook 

2709.11, Section 37.05 

43 
This page left blank intentionally. 
Appendix B 

Recreation Use Area 

Cards

   
   
Appendix B, Recreation Use Area Cards – Page 1

APPENDIX B – 

RECREATION USE AREA CARDS 

Appendix B, Recreation Use Area Cards, is used to explain information about each 

Recreation Use Area and any district-wide or site-specific resource concerns, design 

elements, and mitigations. Narrative cards and maps for each Recreation Use Area in this 

Draft EIS are in numerical order. The Recreation Use Area cards summarize information 

about the area and recreational uses, the project design/mitigation measures/permit 

stipulations, and the resource concerns for the entire Ketchikan-Misty Fiords Ranger District 

(KMRD) and each Recreation Use Area. 

The following sections provide background information for the Recreation Use Area cards as 

well as district-wide design elements and mitigations. The Introduction to Recreation Use 

Area Cards section of this appendix explains information displayed in the individual 

Recreation Use Area cards. The Project Design and General Mitigation Measures section 

summarizes project design elements, mitigation measures, and permit stipulations that apply 

to all Recreation Use Areas, either where a particular resource or resource condition is found, 

or where these conditions are found during permit administration. These elements and 

measures can be either from the Forest Plan or project specific. 

Introduction to Recreation Use Area Cards ______ 

Capacity estimates and allocations are displayed in Service Days. A service day is: “An 

allocation of use constituting a day or any part of a day on National Forest System (NFS) 

lands for which an outfitter or guide provides services to a client. The total number of 

service days is calculated by multiplying each service day by the number of clients on the 

trip” (FSH 2709.11 §41.53d). 

Visitor capacity includes both guided and unguided visitor service days and was calculated as 

an annual number by season. For example, the capacity for 01 West Misty is 299 service 

days each spring, 1,807 service days each summer, and 260 service days each fall.. 

All action alternatives allocate outfitter and guide use for the spring, summer, and fall 

seasons. Season dates are spring: April 20 through May 14 (23 days), summer: May 15 

through September 30 (139 days), and fall: October 1 through October 20 (20 days). No 

allocations are specified for winter use because outfitter and guide use levels in the winter 

are so low that allocations for the winter season were unneeded. 

An encounter is defined as an individual or group met while on National Forest System lands 

or freshwater lakes. When groups or individuals meet employees doing administrative work 

(such as staffing a fish weir or monitoring a campsite), this is not and would not be counted 

as an encounter. 

Recreation Use Area cards provide site-specific information when/where that information 

was available to IDT members. 
Ketchikan-Misty Fiords Outfitter and Guide Management Plan

Appendix B, Recreation Use Area Cards – Page 2 

Project Assumptions, Exclusions, and Items that 

will Trigger Additional IDT review ______________ 

Many potential effects can be negated by explaining what will or will not be allowed or 

included in outfitters’ and guides’ special use permits. Project assumptions used by all 

Interdisciplinary Team (IDT) members are displayed in Chapter 2 of this EIS under 

Alternative Descriptions. Permitted activities will be consistent with federal, state and local 

laws, regulations and orders and with the Forest Plan. 

While analysis of effects was completed for the entire KMRD, some permit actions would 

require additional review by IDT members to assure that effects remain within expectations. 

The following items would require additional review by the identified resource specialist 

prior to issuing an outfitter or guide permit. 

Table B- 1) KMRD Outfitter And Guide Proposals which would Trigger Additional IDT 

Review 

Trigger for Additional Review Botany Heritage Lands Recreation Watershed Wildlife

Any new outfitter and guide use location or a current 

use location not contained within the GIS Outfitter and 

Guide Use point shapefile (filename: 

og_locations02182010; 206 locations documented on 

the KMRD). 

R R R R R R 

Any new permit for annual service days exceeding 50 

service days in one location R R R R R 

Any permit if there are additions to the Regional 

Forester’s Sensitive Species List, under the Endangered 

Species Act, or the Alaska Natural Heritage Program 

Rare Plant List who’s viability is determined to be at 

risk by recreation use. 

R R R 

Any permit for alpine or sub-alpine hiking or camping 

for group sizes 6 or over R R 

Any request to conduct any kind of outfitter guide 

activities in 04 Duke, 21 Percy, Hotspur, Mary, 11 

Gravina, and 03 South Misty 

R R R 

Any request to visit historic or prehistoric locations R 

Any request for new or additional big game hunts, any 

requests for re-allocating existing big game hunts, and 

any requests for guided take of incidental species R 

Anything that would increase the recreation carrying 

capacity R R R R R 

Any request to increase allocation (using adaptive 

management) R R R R R 

Any new requests for use where social conditions are 

approaching or exceeding standards described in 

Chapter 2 of the EIS under Alternative Development 

Process. 

 R 
Draft Environmental Impact Statement

Appendix B, Recreation Use Area Cards – Page 3 

Process ____________________________________ 

Permit Screening and Preparation 

Outfitter and guide permit proposals go through a two-stage screening process prior to being 

accepted as formal applications (36 CFR 251.54(e)). Proposals are first checked for the 

following: 

 Consistency with federal, state and local laws, regulations and orders; 

 Consistency with the Forest Plan; 

 Whether the proposal falls within the bounds of the decision for the KMRD Outfitter and 

Guide Management Plan EIS, or other applicable environmental analyses, or whether it 

requires additional NEPA analysis; 

 Whether there would be a serious or substantial risk to public health and safety; 

 Whether the use would create an exclusive or perpetual right of use or occupancy; 

 Whether the use would unreasonably conflict or interfere with administrative use, other 

scheduled or existing authorized uses, or adjacent land owners; 

 If there is outstanding debt to the Forest Service; 

 To ensure that use does not involve gambling or provision of sexually oriented commercial 

services; 

 To ensure use does not involve military or paramilitary training/exercises by private 

organizations or individuals; and, 

 To ensure use does not involve disposal of solid waste, radioactive waste, or other hazardous 

substances. 

If the proposal passes this initial screening, it is then checked for the following: 

 Is the use inconsistent or incompatible with the purposes for which lands are managed or with 

other uses? 

 Is the use in the public interest? 

 Is the proponent qualified? 

 Does the proponent have the technical and financial capability to comply with the terms and 

conditions of the permit? 

 Is the proponent willing to accept the terms and conditions of the permit? 

A proposal must pass all criteria in order to become an accepted application. Once the 

proposed use is determined acceptable, the authorizing officer may choose to issue a special 

use permit with stipulated terms and conditions. 

Project Design and General Mitigation Measures _ 

The Forest Service uses many measures to prevent or mitigate negative social and 

environmental impacts in the planning and implementation of land management activities. 

These measures were developed from applicable laws and regulations, manual direction, the 

Forest Plan standards and guidelines, and recommendations from other sources (e.g. Leave 

No Trace methods). 
Ketchikan-Misty Fiords Outfitter and Guide Management Plan

Appendix B, Recreation Use Area Cards – Page 4 

The following is a list of project design and mitigation measures that will be applied in all of 

the action alternatives to commercial recreation activities in all Recreation Use Areas where 

those conditions exist. In addition, where information was available, site-specific resource 

concerns, design elements, and mitigation measures are listed on the Recreation Use Area 

cards at the end of each card. The Use Area cards provide site-specific information and 

guidance for commercial permit preparation and administration, and include a map and 

narrative identifying resource concerns and site-specific mitigation measures. 

The design elements and mitigation measures listed here and on the cards will be used to 

prepare and administer outfitter and guide permits. They will be incorporated into the permits 

as stipulations where applicable. Mitigation measures may be further refined during the 

monitoring and administration of commercial use authorizations as additional information 

becomes available. 

General Permit Stipulations 

The following measures are included as stipulations, permit clauses or additional conditions 

in applicable outfitter and guide special use authorizations: 

1. Outfitter and guide activities are required to comply with all applicable federal, state, 

and local laws, regulations, and standards. 

2. Outfitters and guides will carry a copy of the permit and annual operating plan in the 

field at all times and guides will be knowledgeable about the locations and activities 

authorized and requirements contained within these documents. 

3. Outfitter and guide use of a permitted area is not exclusive and will not preclude 

public use or access. Outfitter and guide activities shall not interfere with subsistence 

resource users or disrupt subsistence resource gathering activities. 

4. Land ownership is mixed; it is the responsibility of the permit holder to determine 

ownership and obtain proper authorization for use of private, native, State of Alaska, 

State selected, or local government-held lands. 

5. Outfitters and guides will incorporate “Leave No Trace” methods for all activities on 

National Forest System lands, including trash disposal, personal waste disposal, and 

campfire use (see www.lnt.org. for additional information). All food, belongings, and 

gear brought on-site by guides and their clients, will be stored in such a manner as to 

not be an attraction to bears and other wildlife. Outfitters and guides will not harass or 

chase bears, or other wildlife, with motorized land vehicles, boats, or aircraft. 

6. Outfitters and guides will provide high-quality services to their clients and facilitate 

the use and enjoyment of National Forest System lands. Outfitter’s and guides’ 

actions should increase public understanding and appreciation of the Forest Service’s 

mission and goals. 

7. All outfitters and guides will submit an Actual Use Report to the Forest Service 

annually. Information on the Report will include the following: date, number of 

groups and number of clients using NFS lands, specific location of use (including 

latitude and longitude), activity, and time spent on NFS lands. 

8. Within designated Wilderness, group size is limited to 12 people (including guides) at 

one time. Group size limit on the non-Wilderness portion of the District is 16 people, 

unless specifically authorized in the permit. 
Draft Environmental Impact Statement

Appendix B, Recreation Use Area Cards – Page 5 

Resource-specific Design and Mitigation Measures 

Botany 

Sensitive and rare plants and suitable habitats are present within each Recreation Use Area. 

Some of these species occur nowhere else on the Tongass National Forest. Past surveys have 

occurred in areas associated with projects that have ground-disturbing activities. Very few 

known recreation sites or potential future recreation sites have been surveyed. 

The Ketchikan-Misty Fiords Ranger District (KMRD) will not authorize outfitter and guide 

use within any documented sensitive or rare plant population location, unless otherwise 

approved by the KMRD Botanist. 

To reduce impacts associated with concentrated use in fragile sensitive and rare plant suitable 

habitats: 

Beach Meadows: Along the shoreline, guided groups are encouraged to camp on hardened 

surfaces, such as upper beach cobbles, or non-vegetated surfaces whenever possible. 

Outfitters and guides will not establish new camps in beach meadows. Outfitters and guides 

may use exisiting dispersed campsites within beach meadows. Dispersed campsites are 

easily noticeable, and may be indicated by the presence of an established fire ring or other 

unnatural site modification. When walking through these areas, guided groups will stay on 

existing paths and game trails, where available, to avoid trampling or damaging vegetation in 

beach meadows. Located at the margin between marine beaches and the forest fringe, beach 

meadows are characterized by the presence of tall grasses, beach pea, Indian paintbrush, 

Pacific silverweed, yarrow, chocolate lily, pretty shooting star, and Nootka lupine. These 

meadows often have between 20-40 different plant species, some of which are on the 

sensitive species list. 

Alpine and Subalpine: At high elevations, guided groups are encouraged to camp on 

hardened surfaces, such as bedrock, or in dry, upland short sedge habitats. Outfitters and 

guides will not establish camps in wetter, meadow-like sites as they are more susceptible to 

vegetation damage. Outfitters and guide will not use the same campsite more than once per 

year and will alternate campsites on a every other year rotation. This will provide time for 

vegetation to recover. In areas where an existing, maintained trail exists, people will stay on 

the existing path. When walking through moist or wet areas without maintained trails, 

guided users will spread out and walk on durable, harder surfaces. Party size may be limited 

in the subalpine and alpine zones. A sensitive ecosystem, the alpine is fragile and vegetation 

is slow to recover after impacts. Located above treeline, the alpine ecosystem is 

characterized by short, windswept perennial shrubs, stunted, leaning conifers, heaths and 

mountain meadows. 

If a sensitive or rare species is found or reported at any time, the Ketchikan-Misty Fiords 

Botanist will be notified. 

Invasive Plant Species: The activities associated with recreation use facilitate the movement 

of invasive plant species. Invasives have been documented within most Use Areas. Past 

surveys have occurred in areas associated with projects that have ground-disturbing 

activities, and along roadways. Very few known recreation sites have been surveyed. 
Ketchikan-Misty Fiords Outfitter and Guide Management Plan

Appendix B, Recreation Use Area Cards – Page 6 

Invasive plant species have the potential to move into uninfested sites. To prevent new 

introductions, reduce the spread of existing infestations, and educate outfitters, guides, and 

the public on invasion ecology, the following will occur: 

 Provide invasive plant species education in the form of presentations and identification 

brochures to outfitters and guides; encourage weed information be shared with permit 

holders’ clients. 

 Implement the FS Guide to Noxious Weed Prevention Practices (USDA 2001): 

 Weed-Free Visitors: Briefly inspect clothing, especially shoe laces and soles, for 

invasive plant seed or vegetative material, before transport to recreation sites. Plant 

seed or vegetative material will be placed in a plastic bag, sealed closed, and thrown 

away in a receptacle destined for a landfill.. 

 Weed-Free Vehicles: Vehicles and off-road vehicles used in the shuttling of clients at 

remote recreation sites will be washed clean of invasive plant seed or vegetative 

material prior to transport to each remote site. Vehicles used solely in town and on 

connected road systems do not have to be washed, 

 Weed-Free Travel: Vehicles and off-road vehicles at remote recreation sites will be 

restricted to parking in designated cleared areas. Vehicles will remain within the road 

prism at all times. No parking or driving off-road. 

Fisheries/Hydrology 

Riparian areas, flood plains, and wetlands occur throughout the project area. Many Forest 

Plan standards and guidelines apply to management and use of these areas. The following 

standards and guidelines are the Forest Plan direction that are most applicable to the 

management of outfitters and guides: Ensure that permit holders understand Riparian 

Management Areas and riparian management objectives (RIP2 D, Forest Plan p. 4-51) and 

seek to avoid adverse impacts to soil and water resources (such as accelerated erosion and 

siltation of fish habitat) when conducting land use activities on wetlands, flood plains, and 

riparian areas (SW3 B, Forest Plan p. 4-65). 

Aquatic invasive species present a serious threat to fisheries in southeast Alaska. A 

combination of education and implementing the following pro-active measures will aid 

efforts to prevent the introduction of aquatic invasive species: 

 Waders and wading boots not provided by permit holder will be disinfected prior to use. 

Two effective methods of disinfection include soaking gear in 10% bleach solution for 10 

minutes or freezing overnight. 

 Waders provided by permit holder will be disinfected at the beginning of the season and 

following any use off KMRD. 

 If Aquatic Invasive Species are discovered in southeast Alaska, frequency of disinfection 

will increase. 

Geology/Karst 

This EIS does not include use or visitation of caves. If caves are found, permit holders will 

report them to the permit administrator and avoid the caves. 
Draft Environmental Impact Statement

Appendix B, Recreation Use Area Cards – Page 7 

Heritage 

To verify affect assumptions the KMRD archeologist will periodically visit a sample of 

outfitter and guide use areas and follow standard monitoring protocols. This periodic 

monitoring will ensure that conducting the permitted activities will not adversely affect 

cultural resources through soil disturbance, rutting, compaction, or erosion. Monitoring will 

also address issues of future commercial use that may increase the potential for looting or 

inadvertent disturbance of heritage resources. 

An annual presentation will be given by the KMRD archaeologist to as many as practicable 

of the outfitters and guides who take clients out into the Ketchikan-Misty Fiords Ranger 

District concerning Cultural Resource awareness and the laws that protect them. 

There is one or more cultural resource sites (aka “historic properties”) located in every 

Recreational Use Area on KMRD that are either listed, determined eligible or potentially 

eligible for the National Register of Historic Places. The permit administrator will work with 

the KMRD archaeologist before issuing any outfitter or guide permits at new locations in any 

of the Recreation Use Areas. 

Any cultural resources encountered during outfitter and guide activities should be left as 

found and reported to the permit administrator. If historic, prehistoric, or paleontological 

objects or sites are discovered during activities under these permits, the holder is responsible 

for assuring that those objects or sites are not disturbed during the course of the activities of 

the holder or the holder's clients. The holder must notify the Forest Service of such discovery 

at the earliest opportunity. Failure to comply with this clause may result in criminal 

prosecution of the holder for violation of a Federal law or regulation. 

Lands 

Lands should review all new permit locations for compliance with policies and procedures 

for State of Alaska or Native selected lands and for potential conflicts with existing lands 

special use authorizations. All permit holders are expected to obtain proper authorization for 

non-National Forest System lands and follow the terms and conditions of their permit. 

Recreation 

Outfitters and guides are not authorized to use Forest Service public recreation cabins or their 

amenities (e.g. skiffs, firewood, and fire rings) unless specifically authorized on their permit. 

Low-use recreation cabins may be authorized for commercial use on a case-by-case basis. 

Outfitter and guide camps are prohibited within one mile of any public recreation cabin. 

Soils 

Any areas of concern, such as new landslides, should be brought to the attention of the permit 

administrator, and reported to Forest Service soil scientists. Proposed activities should avoid 

landslide areas until vegetation has re-established. 
Ketchikan-Misty Fiords Outfitter and Guide Management Plan

Appendix B, Recreation Use Area Cards – Page 8 

Subsistence 

A subsistence stipulation (#3) is included in Permit Stipulations above. 

Wetlands 

Minor loss of vegetation might occur in some places from heavy foot traffic but wetland 

function would not be significantly impacted by proposed activities. Foot traffic within 

wetland areas is permitted but should be minimized, where practical. 

Wildlife 

Hunt Conditions common to all areas, all alternatives

Big game guide use areas (GUAs) do not correspond with recreational use areas. Due to 

identified concerns for brown bears, black bears, and mountain goats, no additional or reauthorization of outfitter-guide hunts shall be authorized on KMRD until current research 

results are available. After that time, any requests for additional hunts or hunts in a different 

GUA shall be coordinated with the KMRD district biologist and ADF&G area biologist 

before permit issuance. The Determination of Need for Commercial Uses on the KetchikanMisty Ranger District did not identify an outfitter-guide need for other hunts, such as deer 

hunting. 

Big game guides are requested to submit specific location (including latitude and longitude) 

of kills, sex of animal taken, and hunter success on their annual use report. 

Permit Stipulations

Potential effects to wildlife fall mainly in the category of disturbance during critical life 

phases: overwintering when body reserves are limited, reproduction and young rearing when 

disturbance can further deplete body resources and/or cause abandonment of young, and 

summer/fall foraging where animals are trying to put on fat reserves in preparation of 

migration and/or the winter season. Disturbance prevention criteria are found in legal 

regulations, Forest Plan Standards and Guidelines, research, and general rules for wildlife 

viewing etiquette. 

Outfitters and guides will avoid known sensitive wildlife areas, including kidding and 

calving areas, den sites, nest sites, haul-outs, rookeries, and seabird colonies. 

Approaching, harassing or feeding any wildlife is prohibited. 

Beach and Estuary Fringe:

The beach/estuary fringe (approximately 1000 foot wide strip along saltwater) is important to 

a variety of wildlife including bald eagles, shorebirds, waterfowl, goshawks deer, marten, 

river otter, bear, and other wildlife species associated with the maritime-influenced habitat. 

Conduct shore related activities (EG: camping, hiking, nature tours) so that there is little 

evidence of human influence: stay on existing trails, avoid nest areas, re-locate if wildlife 

exhibit signs of agitation, avoid areas with signs of high wildlife use such as otter dens or 

latrines. Avoid disturbing black oystercatchers and their nests in accordance with FSM 

2670.22 and 2670.32. 
Draft Environmental Impact Statement

Appendix B, Recreation Use Area Cards – Page 9 

Bears:

Estuarine grass flats and larger grass flats along lake inlets and outlets are important bear 

foraging areas. Avoid disturbance during spring emergence from dens when bears are 

feeding upon grasses (Spring through mid-June) and during salmon runs when bears are 

feeding to survive the winter (mid-July through Fall). Other streams that support salmon 

runs also receive substantial use by foraging bears. Manage guided activities (camping, 

hiking, nature tours, flightseeing landing tours) within 500 feet of these areas when bears are 

present to avoid disrupting bears and to reduce chances of human/bear incidents. Move 

further away if bears change behavior (for example: stop foraging, raise head). Outfitterguides and clients are prohibited from approaching, chasing or buzzing bears with vehicles, 

OHVs, aircraft or boats. 

Follow working in bear country and bear viewing etiquette to prevent human/bear conflicts. 

All food and other equipment shall be stored in appropriate containers and in such a manner 

as to not attract bears. Leave food in aircraft, boat, or vehicle where available and pack out 

all trash. Educate clients on bear behavior 

Swans, Waterfowl, and Shorebirds:

Estuary/grassy flats are also important to migrating and wintering waterfowl, including 

trumpeter swans. Avoid disturbance of trumpeter swans, seabird rookeries, and waterfowl 

and shorebirds from October 1 – April 30. Disturbance is any activity or approach that causes 

birds to flush or change activity. Swan nesting is rare in southeast Alaska, but is known to 

occur in Traitors Cove and on Duke Island. Any swans observed after the April migration 

period are likely nesting. Do not approach, limit the amount of noise, and move away from 

the general area. Implement swan, waterfowl, and shorebird Forest Plan buffers (generally 

330 feet from important habitat) to lower risk of disturbance. Report any nesting swans to the 

district biologist. 

Goats:

Mountain goats are present in subalpine/alpine habitat and are particularly sensitive to 

disturbance during the winter through the kidding season (approximately June 15). 

Authorized aircraft are required to stay at least 1,500 feet from goats and traditional summer 

and kidding habitat. Maintain greater distance where terrain allows (recent research 

recommends aircraft maintain a 2 kilometer [~6,600 ft] horizontal distance and at least 1,640 

foot vertical distance from goats). 

Limit other activities (camping/hiking) in subalpine/alpine ecosystem and avoid approaching 

or conducting other actions that elicit fright/flight behavior in goats (nervous glancing 

around, walking, running). If this behavior is noted, immediately move quietly away from 

area to prevent injury to goats and/or abandonment of kids. 

Bald Eagles:

Bald eagles are subject to disturbance during the nesting and courtship period which can 

result in nest abandonment. Over 90 percent of nests on the Tongass occur within the beach 

buffer. All commercial recreational activities (including boating) are prohibited within a 

minimum of 330 feet of bald eagle nests; move further away from nest if eagles exhibit signs 

of agitation (http://alaska.fws.gov/eaglepermit/guidelines/recreation.htm).
Ketchikan-Misty Fiords Outfitter and Guide Management Plan

Appendix B, Recreation Use Area Cards – Page 10 

Marine Mammals:

Humpback whales (endangered), Fin whales (endangered), Steller sea lions (threatened) 

Harbor seals, Dall’s porpoise, and Pacific white-sided dolphins occur in marine waters 

surrounding KMRD. Outfitter-guides and clients are prohibited from approaching within 100 

yards of any marine mammal or marine mammal haulout. Maintain further distance if 

animals exhibit any change in activity. 

http://www.fakr.noaa.gov/protectedresources/mmv/guide.htm

Goshawks, Other Raptors (including Osprey), and Herons: 

No activities are authorized within a minimum of 600 feet of known nest locations. Prevent 

disturbance within 2 miles of peregrine falcon nests. Increase all distances if birds exhibit 

any sign of agitation. Report any goshawk sightings and especially any attacks to KMRD 

biologist within 48 hours or at end of trip for follow-up monitoring. Inform KMRD biologist 

if any peregrine falcons, heron rookeries, other raptor nests, or marbled murrelet nests are 

observed during outfitter-guide activities for follow-up monitoring and avoid activities within 

proximity of the nest. Only a few documented sightings or nest records occur on these 

species. 
WEST MISTY

WEST MISTY

01 WEST MISTY Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Cities / Towns

Hiking Trails

OHV Trails

Roads

Non-Forest Service Lands

0 5 10

Miles 09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data 

displayed on this map, and reserves the right

to correct, update, modify, or replace this

information without notification.

Primitive Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 11

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 01 WEST MISTY 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

299 < 1 2 1,807 48 67 260 11 27 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 96 SDs 

B 15 45 15 271 15 39 

C 50 150 50 904 50 130 

D 15 45 15 271 15 39 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the eastern portion of Revillagigedo Island that is designated Misty 

Fiords National Monument Wilderness and borders the East Behm Canal. 

Recreation Opportunity Zone: Primitive Wilderness (PW) 

Land Use Designations (LUDs): Wilderness Monument, Wilderness Monument Wild River (Fish Creek 

System, including Gokachin Lakes)

Recreation Opportunity Spectrum (ROS) Class: Primitive, Semi-Primitive Motorized and SemiPrimitive Non-Motorized 

Communities: None.

Forest Service Recreation Facilities

Trails (2): Low Lake / Big Lake Trail and Gokachin Lake Trail 

Land Status

National Forest System Lands: One encumbrance: the Claude Creek/Claude Lake area has a 

withdrawal for power site classification. 

Non-National Forest System Lands: None 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 12

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Current Recreational Use and Setting

Seven outfitter and guide use locations and eleven dispersed recreation sites have been recorded in this 

area. Most dispersed sites have minimal impacts; Claude Point is the only site with moderate to high 

impacts. The southern portion of the area receives numerous aircraft overflights during the summer 

season. 

Area Attractions: Big Lake, Gokachin Lakes, Claude Point, Portage Cove, Grace Cove, and Mt. Reid

Guided Use: Approximately 60 guided visitors annually, with most use occurring in the summer and fall 

(hunting) seasons. Guided activities include fishing on the Fish Creek system, mountain goat and black 

bear hunting (with camping), and floatplane landings tours. 

Unguided Use: Fishing, hunting, boating, hiking, and camping. The Fish Creek system, including Big 

Lake, is accessed from saltwater by the Big Lake Trail, and is a popular area for unguided fishing. 

Twenty seven groups, consisting of 76 individuals, signed into the trailhead register for Big Lake Trail in 

2009. Of these, approximately 50% were overnight visitors. 

Resource Considerations* 

Botany: There is one rare plant population documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or 

when the permit holder asks for an increase in the number of authorized days in this area. A map of the 

location of the population can be provided upon request. Please refer to the Unit Card introduction. 

 

Invasive Plant Species: There are 12 invasive plant populations (4 TNF High Priority Invasives) 

documented in this recreational use area. The permit administrator will work with the District Botanist 

before issuing any outfitter or guide permits in this area. A map of the location of the populations can be 

provided upon request. Please refer to Unit Card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources.

Heritage: There are 9 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter or guide permits in 

this area. 

Recreation: 

• When accessed by floatplane, outfitter and guide use of Big Lake and Gokachin Lakes will be 

included in the guided use allocation for the West Misty Use Area. When accessed by trail from 

Thorne Arm, outfitter and guide use will be included in the guided use allocations for the George 

Carroll Thorne Use Area. 

• No outfitter or guide use will be authorized on the Low Lake / Big Lake Trail or Gokachin Trail 

on weekends or holidays. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: Potential for sounds associated with motorized traffic (floatplanes and motorized boats) to 

impact wilderness character and opportunities for solitude. Currently, guided floatplane landing rates on 

Big Lake are far below standards set for the primitive wilderness recreation opportunity zone. Social 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 13

____________________________________________________________ Draft Environmental Impact Statement
encounter rates are below, but approaching, the standard of no more than two encounters per day 80% of 

the time. 

Wildlife: Estuary grass flats and large grassy areas at inlets and/or outlets of lakes are important foraging 

areas for bears. Grassy tideflats such as Portage and Grace Coves provide resting and foraging habitat for 

migrating waterfowl.

Brown bears are possible in this recreation use area due to proximity to the mainland; apply Forest Plan 

S&G WILD1.IX.C (FP, pg. 4-92) “Manage human/bear interactions ...” as well as general design criteria 

to prevent conflicts. Portage Cove above salt chuck and Grace Cove – estuary zone/grassy flats and 

associated anadromous streams are important black bear feeding areas and may also be used by transient 

brown bear. Guided use (excluding currently authorized black bear hunts) shall be limited to the outer 

cove area below the chuck Spring recreation season - June 30 and mid-August through Fall season. North 

end of Third and Gokachin Lakes and smaller lakes between Gokachin and Princess Bay have extensive 

grassy flats at lake inlets; these are higher elevation so avoid disturbance near these grass flats during 

summer season.

Avoid disturbing migrating and wintering waterfowl in Portage Cove and Grace Coves during fall, 

winter, and spring recreational use seasons. 

Mountain goat populations are susceptible to human disturbance. Forest Plan S&G WILD1.XV.A.1&2 

apply to this use area for activities in subalpine/alpine habitat (e.g.: ridges near Mt. Reid, Aqua Lake, 

Third Lake, Grace Lake, January Lake) and for Forest Service permitted flights to prevent disturbance to 

mountain goats. Maintain at least 1,500 foot distance; 6,600 feet is recommended by research so greater 

distances should be used where terrain and weather permit. 

Documented bald eagle nests present in Grace Cove near current recreation use site and concentration of 

nests in Grace/Snip general vicinity and Cow Creek/Claude Point area. Total of 11 nests; guided activities 

are prohibited within 330 feet of nests from March 1-August 31. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 14

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Ketchikan

Hyder

NORTHEAST MISTY

02 NORTHEAST MISTY Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 5 10

Miles

09/22/2010

The USDA Forest Service makes 

no warranty, expressed or implied, 

regarding the data displayed on this map, 

and reserves the rightto correct, update, 

modify, or replace thisinformation without notification.

Primitive Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 15

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 02 NORTHEAST MISTY 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

938 1 3 5,671 138 190 816 4 18 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 211 SDs 

B 15 141 15 851 15 122 

C 50 469 50 2,836 50 408 

D 5 47 5 284 5 41 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the central and northern mainland portions of Misty Fiords National 

Monument Wilderness (MFNMW) as well as the National Monument non-wilderness area surrounding the Quartz 

Hill mine site. This area is characterized by a remote and rugged landscape and contains several large river 

systems, including the Leduc River and the headwaters of the Unuk and Chickamin Rivers. The Chickamin and 

Leduc Rivers are designated Wild and Scenic River candidates. The Keta and Blossom River watersheds are also 

included in this area. 

Recreation Opportunity Zone: Primitive Wilderness (PW)

Land Use Designations (LUDs): Wilderness Monument, Wilderness Monument Wild River (Chickamin, Leduc 

and Blue Rivers), Wilderness Monument Special Interest Area (Blue River Lava Flow Geological Area), 

Wilderness Monument Research Natural Area (Robinson Creek), and Non-Wilderness Monument. 

 

Recreation Opportunity Spectrum (ROS) Classes: Primitive, Semi-Primitive Non-Motorized and SemiPrimitive Motorized 

Communities: None. 

Forest Service Recreation Facilities

None. 

Land Status

National Forest System Lands: No encumbrances

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 16

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Non-National Forest System Lands: Private ownership parcels in Tombstone Bay area (Portland Canal) and 

Quartz Hill (mining patent). 

Current Recreational Use and Setting

Twenty outfitter and guide use locations and nine dispersed recreation sites have been recorded in this area. Most 

dispersed sites have minimal impacts; a dispersed site on Leduc Lake is the only location with moderate to high 

impacts. 

Area Attractions: Alpine lakes used to access hunting and fishing opportunities; upper portion of the Portland 

Canal; Saks and Fitzgibbons Coves; and upper sections of the Chickamin and Unuk River systems. 

Guided Use: Approximately 142 guided visitors annually, with most guided use occurring during the summer 

season. Area is popular for guided brown bear, black bear, and mountain goat hunting. Small number of floatplane 

tours on Leduc, Checats, and Sundial Lakes. Guided fishing on the Wilson River. 

Unguided Use: Fishing, hunting, boating, camping, and subsistence activities. The upper Portland Canal is 

predominantly used by residents of Hyder, AK and Stewart, British Columbia. 

Resource Considerations* 

Botany: There is one sensitive plant population documented in this recreational use area. The permit administrator 

will work with the District Botanist before issuing any new outfitter or guide permits or when the permit holder 

asks for an increase in the number of authorized days in this area. A map of the location of the population can be 

provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: Please refer to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 14 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter or guide permits in this area. 

Recreation: 

 The commercial recreational emphasis in this area is for wilderness-dependent activities including fishing, 

hunting, remote setting nature tours, and camping. 

 There is a concern that management actions to reduce impacts to wilderness character from floatplane 

landings in the Misty Core Use Area will cause use to disperse to alpine lakes in the Northeast Misty Use 

Area. An increased number of floatplane landings may be inconsistent with the primary activities currently 

occurring in Northeast Misty Use Area (fishing and hunting). 

• Monitoring will be conducted to ensure that opportunities for solitude on lakes within this Use Area are not 

diminished upon implementation of guided use allocations in the Misty Core Lakes Use Area. 

Subsistence, Traditional Use, and Personal Use: Subsistence hunting of moose is very important to qualified 

rural residents; sport hunt important to Unuk property owners and long-time Ketchikan hunters. Delicate balance 

between subsistence and long-time sport hunters over this limited population. 

Wilderness: Access by motorized floatplanes and boats has the potential to impact wilderness character and 

opportunities for solitude.

 There is a concern that management actions to reduce impacts to wilderness character from floatplane 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 17

____________________________________________________________ Draft Environmental Impact Statement
landings in the Misty Core Use Area will cause use to disperse to alpine lakes in the Northeast Misty Use 

Area. Increased floatplane traffic in this area has the potential to degrade wilderness character. 

 Social encounter rates are currently far below standard of no encounters per day 80% of the time. 

Wildlife: Contains the headwaters of Unuk River. The only moose population on KMRD occurs in this recreation 

use area with fairly small herd present. 

The Unuk and Chickamin Rivers are important to brown bears (Mainland brown bear study) with preliminary 

indications that populations are not as robust as previously thought. Other large rivers and anadromous streams 

provide foraging habitat during salmon runs and help bears enter the winter in fit condition. Avoid disturbing bears 

at inlets to LeDuc and No Name Lakes. Black bears also occur within the area. Implement bear criteria in 

“Introduction to Unit Cards” to prevent disturbance of bears while foraging and to limit human/bear conflicts. 

Mountain goats are present on most subalpine/alpine ridges including those above Checats, LeDuc, Rudyerd, 

Punchbowl, and Walker. They are particularly sensitive to disturbance during the winter through the early summer 

kidding season. Maintain at least 1,500 foot distance; 6,600 feet is recommended by research so greater distances 

should be used where terrain and weather permit. 

Portland Canal is used extensively by waterfowl. Avoid activities within 330 feet; further if birds show signs of 

disturbance. 

Marine mammals are common in East Behm Canal and Portland Canal. Maintain at least 100 yard distance away 

from all marine mammals and implement NMFS viewing guides for all activities. 

There are 30 known bald eagle nests within this area, some in close proximity to existing outfitter and guide use 

sites. All activities are prohibited within 330 foot of nests during breeding season (March 1-August 31). 

*District-wide resource considerations are included in the introduction to these cards.

 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 18

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
SOUTH MISTY

03 SOUTH MISTY Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Cities / Towns

Hiking Trails

OHV Trails

Roads

Non-Forest Service Lands

0 5 10

Miles

09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data 

displayed on this map, and reserves the right

to correct, update, modify, or replace this

information without notification.

Primitive Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 19

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 03 SOUTH MISTY 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

883 7 21 5,338 117 190 768 8 13 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 224 SDs 

B 15 132 15 801 15 115 

C 50 442 50 2,669 50 384 

D 10 88 10 534 10 77 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the southern portion of Misty Fiords National Monument 

Wilderness and is characterized by a fragmented coastline with numerous saltwater inlets, small rivers 

and lakes. Area is primarily accessed via saltwater, although some lakes provide floatplane access to the 

alpine. 

Recreation Opportunity Zone: Primitive Wilderness (PW) 

 

Land Use Designations (LUDs): Predominantly Wilderness Monument, Wilderness Monument 

Research Natural Area (Red and Marten Rivers), and Non-Wilderness Monument. 

Recreation Opportunity Spectrum (ROS) Classes: Primitive and Semi-Primitive Non-Motorized 

Communities: None. 

Forest Service Recreation Facilities

Buoy (1): Mink Bay 

Trailhead (1): Humpback Lake Trailhead 

Land Status

National Forest System Lands: Two encumbrances: A withdrawal for power site classification issued 

for both Hidden Lake & Humpback Lake, and a withdrawal for Tree Point Lighthouse Reserve, US Coast 

Guard. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 20

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Non-National Forest System Lands: Sealaska Corporation parcels in Kirk Point, Tongass Island, and 

Kah Shakes Cove. Private ownership parcels in Gwent Cove (adjacent to Hidden Inlet) and Mink Bay 

Current Recreational Use and Setting

Forty outfitter and guide use locations and 51 dispersed recreation sites have been recorded or reported in 

this area. Five of the dispersed recreation sites have moderate to high impacts. 

Area Attractions: Private lodges in Hidden Inlet, Mink Bay and along the eastern side of Pearse Canal 

in Canada; Tree Point Lighthouse; alpine lakes providing access to fishing and hunting opportunities; and 

commercial fishing along the coastline between Foggy Bay and Tongass Island. 

Guided Use: Approximately 130 guided visitors annually. Main activities are guided fishing and black 

bear, brown bear, and mountain goat hunting accessed by saltwater. Small amount of guided flightseeing 

landing tours occur on alpine lakes accessed by floatplane. Guided camping also occurs in conjunction 

with sea kayaking, fishing, and hunting tours. 

Unguided Use: Fishing, kayaking, hunting and camping predominantly along the southern tip of the area, 

from Boca de Quadra stretching south to Kanagunut Island. Five groups, consisting of 11 visitors, signed 

into the trailhead register for Humpback Lake Trail in 2009. 

Resource Considerations* 

Botany: There are eight rare and special concern plant populations documented in this recreational use 

area. The permit administrator will work with the District Botanist before issuing any new outfitter or 

guide permits or when the permit holder asks for an increase in the number of authorized days in this area. 

A map of the location of the populations can be provided upon request. Please refer to the unit card 

introduction. 

 

Invasive Plant Species: There is one invasive plant population documented in this recreational use area. 

The permit administrator will work with the District Botanist before issuing any outfitter and guide 

permits in this area. A map of the location of the population can be provided upon request. Please refer 

to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources. 

 

Heritage: There are 112 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter and guide permits in 

this area.

Recreation: The commercial recreational emphasis in this area is for wilderness-dependent activities 

including fishing, hunting, remote setting nature tours, and camping. 

 Monitoring crews have documented an increase in the amount of on-the-ground impacts from 

dispersed recreation use noted in this area, including trash, new campsites and campsites with 

higher level of impacts than previously reported, and proliferation of illegal structures. 

Subsistence, Traditional Use, and Personal Use: Waters of Sockeye Creek and Hugh Smith Lake 

within 500 yards of the terminus of Sockeye Creek are identified as customary and traditional subsistence 

use areas by federal and state regulations. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 21

____________________________________________________________ Draft Environmental Impact Statement
Wilderness: Access by motorized floatplanes and boats has the potential to impact wilderness character 

and opportunities for solitude. Social conditions are far below standards established for the primitive 

wilderness recreation opportunity zone. There has recently been an increase in the amount of on-theground impacts from dispersed recreation use noted along the coastline of this Use Area. Impacts such as 

trash piles, new campsites and campsites with higher level of impacts than previously reported, and 

proliferation of illegal structures negatively impact the undeveloped quality of wilderness character. 

 Outfitters and guides will report illegal structures and trash deposits found in this area. 

 Monitoring will be conducted to ensure that opportunities for solitude on lakes within this Use 

Area are not diminished upon implementation of guided use allocations in the Misty Core Lakes 

Use Area. 

Wildlife: The permit administrator will work with the District Wildlife Biologist to avoid or mitigate 

impacts to wildlife resources before issuing outfitter and guide permits in this area. 

Black oystercatchers (R10 Sensitive Species) are present and Forest Plan WILD4.II (FP pg. 4-98), and 

FSM 2670 direction for TES species applies. Oystercatchers nest along the high tide margin of the intertidal zone and nesting habitat includes mixed sand, and gravel beaches, cobble and gravel beaches, 

exposed rocky headlands, rocky islets, and tidewater glacial moraines in close proximity to mussel beds. 

Mountain goats are present in subalpine/alpine habitat throughout the area including the Peabody 

Mountain range and are particularly sensitive to disturbance during the winter through early summer 

during the kidding season. Avoid disturbance of goats from authorized aircraft by maintaining a 

minimum of 1,500 feet distance from goats and important goat habitat and avoiding flight paths over 

important habitat when possible. Recent research (Festa-Bianchet and Cote’ 2008) recommends aircraft 

maintain greater distance than Forest Plan standards and guidelines; thus, maintaining a 6,600-foot 

clearance from goats is recommended where terrain and weather permit. 

The many inlets, bays, and lakes provide foraging areas for both brown and black bears. Avoid buzzing or 

approaching bears with aircraft or boats. Prevent disturbance to foraging bears in spring and during fall 

salmon runs. 

Extensive marine mammal use of area including whales, sea lions, harbor seal, Dall’s porpoise, and 

harbor seals. Seal haulout head of Marten Arm. Endangered Species Act of 1973 as amended (16 USC 

1531 et seq.), Marine Mammal Protection Act of 1972 (16 USC 1361 et seq.), Regulations Governing the 

Approach to Humpback Whales in Alaska (50 CFR Part 224.103), and Migratory Bird Treaty Act of 1918 

as amended (16 USC 703 et seq.) specifically apply to this area. Follow NMFS regulations and maintain 

at least 100 yards from all marine mammals. 

High concentrations of bald eagles occur in Boca de Quadra with 50 nests in the use area. All activities 

are prohibited within 330 feet of nests from March 1 – August 31 in accordance with Bald Eagle 

regulations. 

Great blue heron and sandhill cranes documented in area. Apply Forest Plan Standards and Guidelines if 

any rookeries are found during outfitter-guide operations. Report occurrence to KMRD biologist within 

48 hours. 

 

High concentration of wintering waterfowl, including swans, at head of Marten Arm where there are 

documented outfitter-guide use locations. Also high concentrations Very Inlet, Harry Bay, head of Nakat 

Inlet. Limit disturbance October 1 through April 30. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 22

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Metlakatla

04 DUKE ISLAND Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Cities / Towns

Hiking Trails

OHV Trails

Roads

Non-Forest Service Lands

0 21

Miles

09/22/2010

The USDA Forest Service makes no warranty, expressed or 

implied, regarding the data displayed on this map, and 

reserves the right to correct, update, modify, or replace this 

information without notification.

Semi-Primitive Non-Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 23

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 04 DUKE ISLAND 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

359 0 0 2,168 41 221 312 0 0 1

 Use in this area has not been permitted since 1999. However, unplanned use occurred in one year by a guide who had 

formerly been permitted in the area and did not realize it was closed. That use was stopped upon discovery and has not 

occurred again. 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 22 SDs 

B 0 0 0 0 0 0 

C 50 189 50 1,084 0 156 

D 0 0 0 0 0 0 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area includes Duke, Dog and Cat Island as well as numerous other smaller islands in the vicinity. 

These islands are remote and almost entirely undeveloped. 

Management Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): Special Interest Area (Duke Island Zoological Area) 

Recreation Opportunity Spectrum (ROS) Classes: Primitive 

Communities: None. 

Forest Service Recreation Facilities

None. 

Land Status

National Forest System Lands: Two encumbrances: Dog Island has a withdrawal due to Research Natural Area 

classification; Judd Harbor/Kelp Island has been selected by the State of Alaska for Community Grant; the 

selection application has been filed. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 24

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Non-National Forest System Lands: Sealaska Corporation parcels include part of Cat Island, Village Island and 

adjacent smaller island. 

Current Recreational Use and Setting

One outfitter or guide use location and 20 dispersed recreation sites have been recorded or reported in this area. 

Area Attractions: Anchorages on northern half of Duke Island are used by the commercial fishing fleet. Beaches 

on Duke Islands are popular for picnicking and camping. 

Guided Use: No guided use authorized or reported since 2005. 

Unguided Use: Boating, hunting, beachcombing, camping, and fishing 

Resource Considerations* 

Botany: There are 16 sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: Please refer to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 32 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. This entire Recreational Use 

Area has been declared sacred by federally recognized tribes as per Executive Order 13007. This area is also in the 

process of being evaluated as a Traditional Cultural Property. The permit administrator will work with District 

Archaeologist before issuing any new outfitter and guide permits in this area. 

Recreation: None. 

Subsistence, Traditional Use, and Personal Use: Very important subsistence area for residents of Metlakatla and 

Saxman. 

Wilderness: N/A 

Wildlife: The Duke Island area was designated as a Special Interest Zoological Area because it contains numerous 

unique wildlife resources including large numbers of waterfowl, seabirds, and migratory birds, nesting sandhill 

cranes and trumpeter swans, fragile habitat, and marine mammal haul-outs. The permit administrator will work 

with the District Wildlife Biologist to avoid or mitigate impacts to wildlife resources before issuing outfitter and 

guide permits in this area. 

Black oystercatchers (R10 Sensitive Species) are present and Forest Plan WILD4.II (FP pg. 4-98), and FSM 2670 

direction for TES species applies. Oystercatchers nest along the high tide margin of the inter-tidal zone and nesting 

habitat includes mixed sand, and gravel beaches, cobble and gravel beaches, exposed rocky headlands, rocky islets, 

and tidewater glacial moraines in close proximity to mussel beds. 

Endangered Species Act of 1973 as amended (16 USC 1531 et seq.), Marine Mammal Protection Act of 1972 (16 

USC 1361 et seq.), Regulations Governing the Approach to Humpback Whales in Alaska (50 CFR Part 224.103), 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 25

____________________________________________________________ Draft Environmental Impact Statement
and Migratory Bird Treaty Act of 1918 as amended (16 USC 703 et seq.) specifically apply to this area. Extensive 

marine mammal use including humpback whales, Steller sea lions, and seals occurs in the surrounding marine 

waters; marine mammal haulouts are present. Follow NMFS regulations. Maintain greater distances if hauled out 

marine mammals exhibit signs of disturbance. 

Peregrine falcons occur on Duke Island. Forest Plan WILD4.IIC.1. (pg. 4-100) for avoiding disturbance to falcons 

applies. Prevent disturbance within 2 miles From April 15-August 31. 

The area is used extensively by wintering waterfowl and shorebirds, including trumpeter swans. Waterfowl and 

Shorebird Habitat FP S&Gs WILD1.XII.A.3, A.6, & B. and WILD4.B.2 apply. Prevent disturbance October 1 

through April 30 and near any nesting birds. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 26

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
SOUTH MISTY LAKES

SOUTH MISTY LAKES

SOUTH MISTY LAKES

05 SOUTH MISTY LAKES Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles 09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data 

displayed on this map, and reserves the right

to correct, update, modify, or replace this

information without notification.

Primitive Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 27

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 05 SOUTH MISTY LAKES 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

262 0 0 1,585 52 96 228 < 1 4 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 100 SDs 

B 15 39 15 238 15 34 

C 50 131 50 793 50 114 

D 10 26 10 159 10 23 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area includes Bakewell Lake, Hugh Smith Lake and Humpback Lake in the southern portion of 

Misty Fiords National Monument Wilderness (MFNMW). 

Recreation Opportunity Zone: Primitive Wilderness (PW) 

Land Use Designations (LUDs): Wilderness Monument and Non-Wilderness Monument 

Recreation Opportunity Spectrum (ROS) Classes: Semi-Primitive Non-Motorized 

Communities: None. 

Forest Service Recreation Facilities

Cabins (3): Bakewell Lake (1), Humpback Lake (1), and Hugh Smith Lake (1) 

Trails (3): Bakewell Lake, Humpback Lake, and Hugh Smith Lake Trails 

Fisheries Project (1): Bakewell Lake Coho Enhancement Project 

Land Status

National Forest System Lands: One encumbrance: The area surrounding Humpback Creek/Humpback Lake has 

a withdrawal for power site classification. 

Non-National Forest System Lands: None. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 28

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Current Recreational Use and Setting

Five outfitter and guide locations have been reported. Average of 42 guided visitors annually. 

Area Attractions: Alpine lakes (fishing and hunting); Forest Service trails, cabins and buoy 

Guided Use: Activities include fishing, brown bear hunting (with camping), hiking, and floatplane landing tours 

Unguided Use: Camping, boating, hiking, fishing, hunting, and cabin use. Seven groups, consisting of 12 visitors, 

signed in at the Humpback Lake trailhead register in 2009, of which approximately 1/3 were staying overnight. The 

Bakewell Lake Cabin received a moderate amount of use prior to installation of the fisheries enhancement project 

on Bakewell Lake. The public recreation cabin is now used as an administrative facility. Hugh Smith and 

Humpback Lake Cabins receive low levels of use. 

Resource Considerations* 

Botany: There is one rare plant population documented in this recreational use area. The permit administrator will 

work with the District Botanist before issuing any new outfitter or guide permits or when the permit holder asks for 

an increase in the number of authorized days in this area. A map of the location of the population can be provided 

upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There is one invasive plant population documented in this recreational use area. The 

permit administrator will work with the District Botanist before issuing any outfitter and guide permits in this area. 

A map of the location of the population can be provided upon request. Please refer to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 3 cultural resource sites located in this Recreational Use Area that are either listed, determined 

eligible or potentially eligible for the National Register of Historic Places. The permit administrator will work with 

District Archaeologist before issuing any new outfitter and guide permits in this area. 

Recreation: The commercial recreational emphasis in this area is for wilderness-dependent activities including 

fishing, hunting, remote setting nature tours, and camping. 

• Hugh Smith and Humpback Lake public recreation cabins may be authorized for commercial use. Bakewell 

Lake public recreation cabin may be authorized for commercial use when there is no longer an 

administrative need for the facility. Hugh Smith cabin will be authorized for a maximum 20 days per month 

(total guided use). Humpback Lake cabin will be authorized for a maximum of 10 days per month (total 

guided use) and no guided use will be authorized on weekends or holidays. 

• When accessed by floatplane, outfitter/guide use of Bakewell, Hugh Smith, and Humpback Lakes will be 

included in the guided use allocation for the South Misty Lakes Use Area. When accessed by trail from 

saltwater, outfitter/guide use will be included in the guided use allocations for the South Misty Use Area 

(Hugh Smith and Humpback Lake) or Wilson Bakewell Use Area (Bakewell Lake). 

Subsistence, Traditional Use, and Personal Use: Waters of Sockeye Creek and Hugh Smith Lake within 500 

yards of the terminus of Sockeye creek are identified as customary and traditional subsistence use areas by federal 

and state regulations. 

Wilderness: Access by motorized floatplanes and boats has the potential to impact wilderness character and 

opportunities for solitude. Guided floatplane landings rates are within standards established for the primitive 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 29

____________________________________________________________ Draft Environmental Impact Statement
wilderness recreation opportunity zone. There is a concern that management actions to reduce impacts to 

wilderness character from floatplane landings in the Misty Core Use Area will cause use to disperse to alpine lakes 

in the South Misty Lakes Use Area. Increased floatplane traffic in this area has the potential to degrade wilderness 

character. No social encounter data exists for this area. 

• Monitoring will be conducted to ensure that opportunities for solitude on lakes within this Use Area are not 

diminished upon implementation of guided use allocations in the Misty Core Lakes Use Area. 

Wildlife: Waterfowl are common on the lakes including loons. Apply design criteria in “Introduction to the Unit 

Cards”. 

Grassy areas along all three lakes and anadromous streams provide foraging habitat for both brown and black bears. 

Avoid buzzing or approaching bears with aircraft and prevent human/bear conflicts during all other permitted 

activities. 

Mountain goats are present on the subalpine/alpine ridges above the lakes. They are particularly sensitive to 

disturbance during the winter through early summer kidding season. Avoid disturbance of goats from authorized 

flight seeing activities by maintaining a minimum of 1,500 feet distance from goats and important goat habitat and 

avoiding flight paths over important habitat when possible. Recent research (Festa-Bianchet and Cote’ 2008) 

recommends aircraft maintain greater distance than Forest Plan standards and guidelines; thus, maintaining a 6,600-

foot clearance from goats is recommended where terrain and weather permit. 

Wolves, bald eagles, and heron are present and frequently sighted. A goshawk territory is suspect to occur around 

Bakewell Lake. 

*District-wide resource considerations are included in the introduction to these cards.

 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 30

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
MISTY CORE LAKES

MISTY CORE LAKES

MISTY CORE LAKES

MISTY CORE LAKES

MISTY CORE LAKES

MISTY CORE LAKES

MISTY CORE LAKES

MISTY CORE LAKES

MISTY CORE LAKES

06 MISTY CORE LAKES Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 2.5 5

Miles

09/22/2010

The USDA Forest Service makes 

no warranty, expressed or implied, 

regarding the data displayed on 

this map, and reserves the right

to correct, update, modify, or 

replace thisinformation without 

notification.

Semi-Primitive Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 31

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 06 MISTY CORE LAKES 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

1,615 63 275 9,758 7,676 9,258 1,404 3 6 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 9,539 SDs 

B 20 323 75 7,318 20 281 

C 50 808 50 4,879 50 702 

D 15 242 15 1,464 15 211 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area includes the following alpine lakes in the core area of Misty Fiords National Monument 

Wilderness (MFNMW): Manzanita Lake, Upper Checats Lake, Punchbowl Lake, Wilson Lake, Nooya Lake, 

Manzoni Lake, Big Goat Lake, Ella Lake, Big Lake, Mirror Lake, Walker Lake and Lake Grace. 

Recreation Opportunity Zone: Semi-Primitive Wilderness (SPW)

Land Use Designations (LUDs): Wilderness Monument and Wilderness Monument Wild River (Mirror Lake and 

Fish Creek Drainage, including Ella Lake) 

Recreation Opportunity Spectrum (ROS) Classes: Semi-Primitive Motorized and Semi-Primitive NonMotorized, Primitive 

Communities: None 

Forest Service Recreation Facilities

Cabins (8): Manzanita Lake (2), Ella Lake (2), Winstanley Lake (1), Upper Checats Lake (1) and Wilson Lake (2) 

Shelters (4): Winstanley Lake, Nooya Lake, Punchbowl Lake and Big Goat Lake 

Trails (5): Ella, Manzanita, Winstanley, Nooya, and Punchbowl Lake Trails 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 32

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Land Status

National Forest System Lands: One encumbrance: A withdrawal for power site classification was issued for two 

separate sites: 1) the lower section of Manzanita Creek and 2) the area surrounding Punchbowl Creek/Punchbowl 

Lake. 

Non-National Forest System Lands: None. 

Current Recreational Use and Setting

Eighteen outfitter and guide use locations and 25 dispersed recreation sites have been recorded in this area. Most 

dispersed sites have minimal impacts. This area is heavily impacted by noise from aircraft overflights. 

Guided Use: Approximately 7,800 guided visitors annually, the large majority of which is for flightseeing landing 

tours. Other guided activities include hiking, freshwater fishing, and mountain goat hunting (with camping). Guided 

hunting activities take place in the fall when less flightseeing activity is occurring. 

Unguided Use: Hiking, camping, cabin/shelter use, fishing, hunting, and wildlife viewing. Punchbowl Lake Trail is 

the most popular trail in this area, with an average of 175 visitors annually during the 2007, 2008, and 2009 

summer seasons. Between 2008 and 2009 an average of 22, 36, 33, 22, and 26 visitors signed in at the trailhead 

registers for Ella Lake, Manzanita Lake, Winstanley Lake, Nooya Lake, and Checats Lake Trails, respectively. 

Approximately 42% of these visitors stayed overnight on NFS lands. The public recreation cabins in this area are 

difficult to access and receive low amounts of use. Two exceptions are the Wilson Narrows and Manzanita Lake 

cabins, which receives a moderate amount of use during the summer season. 

Resource Considerations* 

Botany: There are five sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: Please refer to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 4 cultural resource sites located in this Recreational Use Area that are either listed, determined 

eligible or potentially eligible for the National Register of Historic Places. The permit administrator will work with 

District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: Concern about noise impacts from floatplane traffic and landings, particularly in the area around 

public use cabins. 

• When accessed by floatplane, outfitter and guide use of Nooya Lake, Punchbowl Lake, Winstanley Lake, 

Manzanita Lake, and Ella Lake will be included in the guided use allocation for the Misty Core Lakes Use 

Area. When accessed by trail from saltwater, outfitter/guide use will be included in the guided use 

allocations for the Rudyerd/Winstanley Use Area (Nooya, Punchbowl, and Winstanley Lakes) or Alava 

Princess Manzanita Use Area (Manzanita and Ella Lakes). 

• Ella Narrows, Upper Checats Lake, Wilson Narrows, and Winstanley Lake public recreation cabins may be 

authorized for commercial use. Wilson Narrows, Upper Checats Lake and Winstanley Lake cabins will be 

authorized for a maximum of 20 days per month (total guided use). Ella Narrows cabin will be authorized 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 33

____________________________________________________________ Draft Environmental Impact Statement
for a maximum of 10 days per month (total guided use) and no guided use will be authorized on weekends 

or holidays. 

• Lakes with FS public recreation cabins on them (Manzanita, Ella, Winstanley, Upper Checats, and Wilson 

Lakes) will only be used for floatplane landing tours as alternative landing sites in poor weather and 

emergency situations. 

• Shoreline use in conjunction with floatplane landing tours is not authorized unless this activity, and the 

locations used, is specifically identified in the special use permit. Shoreline excursions will not exceed 30 

minutes. No shoreline excursions will be authorized at lakes with public recreation cabins. 

• Outfitters and guides will conduct flightseeing activities, including landings and takeoffs, in a manner that 

minimizes impacts to other visitors, particularly those using public recreation cabins and shelters. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: Concern that noise impacts from floatplane traffic and landings in the Misty Core Lakes Use Area are 

diminishing wilderness character and opportunities for solitude. Social conditions at Nooya Lake, Manzoni Lake, 

and Big Goat Lake exceed established standards for the semi-primitive wilderness recreation opportunity zone. 

Complaints have been received from unguided visitors about the impact of floatplane traffic on their experience, 

particularly at Nooya Lake. 

• Monitoring will be conducted to ensure that the total number of guided lake landings does not exceed more 

than two landings per day per lake 90% of the time on lakes with public recreation cabins1

 OR more than 

five landings per day per lake 90% of the time on lakes without public recreation cabins. 

• Monitoring will be conducted to ensure that no more than two encounters occur per day per trip 80% of the 

time. 

Wildlife: The inlets and outlets of the lakes provide large grassy foraging areas for both brown and black bears. 

Prevent disturbance to foraging bears by not authorizing landing tours in these areas. Pilots shall avoid close overflights or approaching bears for viewing purposes. 

Mountain goats are present in subalpine/alpine habitat surrounding the area and are particularly sensitive to 

disturbance during the winter through early summer kidding season. Avoid disturbance of goats from authorized 

flight seeing activities by maintaining a minimum of 1,500 feet distance from goats and important goat habitat and 

avoiding flight paths over important habitat when possible. Recent research (Festa-Bianchet and Cote’ 2008) 

recommends aircraft maintain greater distance than Forest Plan standards and guidelines; thus, maintaining a 6,600-

foot clearance from goats is recommended where terrain and weather permit. Individuals should avoid approaching 

goats at all times (except authorized hunts) and increase distance if goats alter behavior. 

*District-wide resource considerations are included in the introduction to these cards.

 

 

1 For the purpose of monitoring guided lake landings, “public recreation cabins” are defined as cabins on the reservation

system. This monitoring standard does not apply to lakes with shelters (e.g.  Nooya Lake, Big Goat Lake, and Punchbowl

Lake). The standard does apply to Winstanley Lake, which has a public recreation cabin and shelter.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 34

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
WALKER CHICKAMIN

WALKER CHICKAMIN

07 WALKER CHICKAMIN Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles 09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data 

displayed on this map, and reserves the right

to correct, update, modify, or replace this

information without notification.

Primitive Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 35

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 07 WALKER / CHICKAMIN 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

221 <1 1 1,334 25 36 192 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 37 SDs 

B 15 33 15 200 15 29 

C 50 110 50 667 50 96 

D 10 22 10 133 10 19 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the shoreline portions of Walker Cove and the outlet of the 

Chickamin River. The Chickamin River is a designated Wild and Scenic River Candidate. 

Recreation Opportunity Zone: Primitive Wilderness (PW)

Land Use Designations (LUDs): Wilderness National Monument and Wilderness Monument Wild River 

(Chickamin River)

Recreation Opportunity Spectrum (ROS) Class: Primitive and Semi-Primitive Non-Motorized 

Communities: None.

Forest Service Recreation Facilities

Buoy (1): Walker Cove 

Land Status

National Forest System Lands: No encumbrances

Non-National Forest System Lands: Private ownership parcels (2) on the Chickamin River

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 36

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Current Recreational Use and Setting

Four outfitter and guide use locations and nine dispersed recreation sites have been recorded in this area. 

Most dispersed sites have minimal impacts; Hut Point is the only site with moderate to high impacts. 

Floatplane landings and overflights have the potential to diminish recreation experiences in Walker Cove. 

Area Attractions: Chickamin River, Walker Cove

Commercial Use: Average of 25 guided visitor days annually, mostly during the summer season. Guided 

activities include brown and black bear hunting, camping, and fishing. Guides also utilize Walker Cover 

for saltwater landings, but these activities do not occur on National Forest System lands and do not 

require a special use permit. 

Other Recreational Use: Fishing, boating, hunting, camping and kayaking. Hut Point is a wellestablished campsite at the entrance to Walker Cove that is popular with unguided and guided visitors. 

Resource Considerations* 

Botany (and Invasive Plant Species): Please refer to the unit card introduction. 

 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 7 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter and guide permits in 

this area.

Recreation: Concern about potential for crowding at the Hut Point campsite. Social encounter rates do 

not currently exceed standards for the primitive wilderness recreation opportunity zone, but there a 

limited number of campsites are available in Walker Cove. 

• Monitoring will be conducted to ensure that the recreation experience at Hut Point is not 

diminished as a result of crowding. Additional outfitter/guide use restrictions may be required if 

use of this site increases in the future. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: Access by motorized floatplanes and boats has the potential to impact wilderness character 

and opportunities for solitude. There is also a concern that management actions to reduce impacts to 

wilderness character from floatplane landings in the Misty Core Use Area will cause use to disperse to 

saltwater bays, such as Walker Cove. The Forest Service does not have jurisdiction over floatplane 

overflights or landings occurring on saltwater, but this where an impact to unguided visitors (e.g. boaters) 

is most likely. Social encounter rates are currently far below the standards. 

Wildlife: High concentrations of bald eagles. Avoid activities within 330 feet of nesting eagles March1 – 

August 31. 

Both Walker Cove and the Chickamin River are important migration and winter habitat for a large variety 

of waterfowl and shorebirds. Prevent disturbance October 1–April 30. 

Mountain goats are present in subalpine/alpine habitat surrounding the area and are particularly sensitive 

to disturbance during the winter through early summer kidding season. Avoid disturbance of goats from 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 37

____________________________________________________________ Draft Environmental Impact Statement
authorized aircraft by maintaining a minimum of 1,500 feet distance from goats and important goat 

habitat and avoiding flight paths over important habitat when possible. Recent research (Festa-Bianchet 

and Cote’ 2008) recommends aircraft maintain greater distance than Forest Plan standards and guidelines; 

thus, maintaining a 6,600-foot clearance from goats is recommended where terrain and weather permit. 

The Walker and Chickamin Rivers are very important to brown bears with preliminary indications that 

populations are not as robust as previously thought. Other Class I streams provide foraging habitat during 

salmon runs and help bears enter the winter in fit condition. Black bears also occur within the use area. 

Prevent disturbance of foraging bears and implement standards and guidelines for preventing human/bear 

conflicts. Avoid buzzing or approaching bears with aircraft or boats. 

Marine mammals are common including concentrations of several hundred harbor seals. Maintain at least 

100 yard distance from all marine mammals and increase distance if animals exhibit any change in 

behavior. 

Goshawks have been observed along the Chickamin River in the past. Maintain at least 600 foot distance. 

Report any sightings or attacks by goshawks to KMRD biologist within 48 hours for follow-up. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 38

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
BURROUGHS UNUK

08 BURROUGHS UNUK Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

Primitive Wilderness

Recreation Opportunity Zone

09/22/2010

The USDA Forest Service makes no 

warranty, expressed or implied, regarding 

the data displayed on this map, and 

reserves the right to correct, update, 

modify, or replace this information without 

notification.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 39

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 08 BURROUGHS / UNUK 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

248 <1 1 1,501 5 10 216 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 11 SDs 

B 15 37 15 225 15 32 

C 50 124 50 751 50 108 

D 5 12 5 75 5 11 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the shoreline area surrounding Burroughs Bay including Grant 

Creek and Fitzgibbon Cove, as well as the Eulachon, Klahini and Unuk River (from the mouth to the first 

canyon).

Recreation Opportunity Zone: Primitive Wilderness (PW) 

Land Use Designations (LUDs): Wilderness Monument

Recreation Opportunity Spectrum (ROS) Class: Primitive, Semi-Primitive Non-Motorized and SemiPrimitive Motorized 

Communities: None.

Forest Service Recreation Facilities

None. 

Land Status

National Forest System Lands: No encumbrances

Non-National Forest System Lands: Private ownership – Numerous parcels at the mouth of the Unuk 

and Eulachon Rivers

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 40

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Current Recreational Use and Setting

Six outfitter and guide locations and 9 dispersed recreation sites have been reported in this area. Most 

dispersed sites have minimal impact; two sites (one at the mouth of the Klahihi River and an Alaska 

Department of Fish and Game administrative site) are moderately to heavily impacted. 

Area Attractions: Unuk, Klahini and Eulachon Rivers; Fitzgibbon Cove

Commercial Use: Small amount of guided black bear and brown bear hunting, camping, and fishing.

Other Recreational Use: Fishing, boating, and hunting. 

Resource Considerations* 

Botany: Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 28 invasive plant populations (24 TNF High Priority Invasives) 

documented in this recreational use area. The permit administrator will work with the District Botanist 

before issuing any outfitter or guide permits in this area. A map of the location of the populations can be 

provided upon request. Please refer to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with the current level of outfitter or guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 21 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter or guide permits in 

this area. 

Recreation: Land ownership on the Unuk and Eulachon Rivers is mixed. Private landowners and 

unguided visitors are concerned about conflicts with guided groups, particularly guided hunters, in this 

area. Outfitters and guides will not displace unguided users and will conduct activities in a manner that 

minimizes inter-group conflict. 

Subsistence, Traditional Use, and Personal Use: Subsistence hunting of moose is very important to 

qualified rural residents. Delicate balance between subsistence and long-time sport hunters over this 

limited population. 

Wilderness: Privately owned parcels at the mouth of the Unuk and Eulachon Rivers, as well as the 

presence of an ADF&G administrative facility, diminish the undeveloped quality of wilderness character 

in this area. No additional structures will be authorized on NFS lands. 

Wildlife: Concerns center around Unuk/Boroughs Bay/Grant Cove although limited waterfowl habitat 

occurs at the head of Fitzgibbon Cove. Unuk River/Boroughs Bay has been identified as major genetic 

linkage corridor from the mainland to the outer islands (MacDonald and Cook 2007). 

The area is used extensively by wintering waterfowl, including trumpeter swans. Waterfowl and 

Shorebird Habitat FP S&Gs WILD1.XII.A.3, A.6, & B. and WILD4.B.2 apply. Avoid disturbance from 

October 1 – April 30. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 41

____________________________________________________________ Draft Environmental Impact Statement
The only moose population on KMRD occurs in this recreation use area with fairly small herd present; 

subsistence hunt is very important to qualified rural residents; sport hunt important to Unuk property 

owners and long-time Ketchikan hunters. 

Important brown bear area with potential for human/bear conflicts. Preliminary research indications that 

populations are not as robust as previously thought. Class I streams provide foraging habitat during 

salmon runs and help bears enter the winter in fit condition. Black bears also occur within the use area. 

Prevent disturbance of foraging bears and implement standards and guidelines for preventing human/bear 

conflicts. Avoid buzzing or approaching bears with aircraft or boats. 

Mountain goats are present in subalpine/alpine habitat surrounding the area and are particularly sensitive 

to disturbance during the winter through early summer kidding season. Maintain at least 1,500 foot 

distance; 6,600 feet is recommended by research so greater distances should be used where terrain and 

weather permit. 

At least 10 bald eagle nests are present within the use area. Avoid all outfitter-guide activities within 330 

feet of nesting eagles March 1 – August 31. 

Marine mammals including humpback whales, Steller sea lion, and harbor seals, are present in Behm 

Canal and Burroughs Bay. Implement NMFS regulations and maintain at least 100-yard distance from 

any marine mammal. Maintain greater distances if hauled out marine mammals exhibit signs of 

disturbance. 

 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 42

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
ALAVA PRINCESS MANZANITA

09 ALAVA PRINCESS

MANZANITA

Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

The USDA Forest Service makes no 

warranty, expressed or implied, regarding 

the data displayed on this map, and 

reserves the right to correct, update, 

modify, or replace this information without 

notification.

Semi-Primitive Wilderness 

Recreation Opportunity Zone

09/22/2010

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 43

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 09 ALAVA PRINCESS ELLA MANZANITA 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

449 0 0 2,711 18 29 390 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 29 SDs 

B 20 90 20 542 20 78 

C 50 225 50 1,356 50 195 

D 15 67 15 407 15 59 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This shoreline use area includes the shoreline from Alava Bay north to Manzanita Bay, this 

including Princess Bay and Ella Cove, as well as Rudyerd and Smeaton Islands.

Recreation Opportunity Zone: Semi-Primitive Wilderness (SPW) 

Land Use Designations (LUDs): Wilderness Monument

Recreation Opportunity Spectrum (ROS) Class: Semi-Primitive Non-Motorized and Semi-Primitive 

Motorized 

Communities: None.

Forest Service Recreation Facilities

Shelter (1): Manzanita Bay

Cabin (1): Alava Bay

Buoys (4): Manzanita, Ella, Princess, and Alava Bays

Trailheads (2): Manzanita and Ella Bays 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 44

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Land Status 

National Forest System Lands: One encumbrance: A withdrawal for power site classification was 

issued for the lower section of Manzanita Creek.

Non-National Forest System Lands: None

Current Recreational Use and Setting

Four outfitter and guide locations and 16 dispersed recreation sites have been reported in this area. All 

dispersed recreation sites have minimal impacts except the area surrounding public recreation cabins. 

Noise impacts from floatplane traffic and motorized boats have the potential to impact wilderness 

character in this area. 

Area Attractions: Forest Service cabins, shelters, trails and buoys 

Guided Use: Small amount of guided hiking, camping, and fishing.

Other Recreational Use: Fishing, boating, hunting, hiking, camping, and use of Forest Service cabins. 

Between 2008 and 2009 an average of 22 visitors (33% overnight visitors) and 36 visitors (55% overnight 

visitors) signed in at the trailhead registers for Ella Lake and Manzanita Lake trailheads, respectively. 

Alava Bay public recreation cabin receives a moderate amount of use. 

Resource Considerations* 

Botany: There are three rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or 

when the permit holder asks for an increase in the number of authorized days in this area. A map of the 

location of the populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There is one invasive plant population documented in this recreational use area. 

The permit administrator will work with the District Botanist before issuing any outfitter and guide 

permits in this area. A map of the location of the population can be provided upon request. Please refer 

to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 11 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter and guide permits in 

this area. 

Recreation: 

• Alava Bay public recreation cabin may be authorized for commercial use. The cabin will be 

authorized for a maximum of 10 days per month (total guided use) and no guided use will be 

authorized on weekends or holidays. 

• When accessed by trail from saltwater, outfitter/guide use of Manzanita and Ella Lakes will be 

included in the guided use allocations for this Use Area. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 45

____________________________________________________________ Draft Environmental Impact Statement
Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: Noise impacts from boat traffic and aircraft overflights (activities outside of Forest Service 

jurisdiction) have the potential to impact wilderness character and diminish opportunities for solitude in 

this Use Area. Social encounter rates are currently well within standards established for the semiprimitive wilderness zone. 

Wildlife: Manzanita Bay, Sargent Bay, and Princess Bay are important swan and waterfowl wintering 

areas. Avoid disturbance October 1 – April 30. 

Ella Bay, Manzanita Bay, and Sargent Bay Class I anadromous streams provide important foraging areas 

for bears during the salmon run. Limit human/bear interactions and conflicts. Avoid buzzing or 

approaching bears with aircraft or boats. 

Harbor seals are common around Alava Bay, Ella Bay, Princess Bay, Sargent Bay, Manzanita Bay; also 

killer whales, Dall’s porpoise, and humpback whales in marine waters of the area. Implement NMFS 

regulations and maintain at least 100 yard distance from any marine mammal. 

Goshawks have been sighted near Alava Bay in the past. Maintain at least 600 foot buffer from any nest; 

increase distance if goshawks still exhibit signs of agitation. Any observations or attacks should be 

reported to the KMRD biologist within 48 hours for follow-up. 

Great blue herons are documented in Manzanita Bay. Report any rookeries to KMRD biologist for 

follow-up and prevent disturbance within 600 feet between March 1 and July 31. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 46

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
RUDYERD WINSTANLEY

10 RUDYERD WINSTANLEY Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data 

displayed on this map, and reserves the right

to correct, update, modify, or replace this

information without notification.

Semi-Primitive Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 47

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 10 RUDYERD / WINSTANLEY 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

497 2 8 3,002 91 147 432 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 155 SDs 

B 10 50 10 300 10 43 

C 50 249 50 1,501 50 216 

D 5 25 5 150 5 22 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the core shoreline portion of Misty Fiords, including Rudyerd Bay and 

Winstanley Island. This coastal area is characterized by steep, granite-walled fjords and is one of the most scenic 

areas on the District. Guided visitors access this area primarily by motorized boat, although some also access via 

floatplane. 

Recreation Opportunity Zone: Semi-Primitive Wilderness (SPW) 

Land Use Designations (LUDs): Wilderness Monument 

Recreation Opportunity Spectrum (ROS) Classes: Primitive, Semi-Primitive Non-Motorized and SemiPrimitive Motorized 

Communities: None. 

Forest Service Recreation Facilities

Trailheads(4): Punchbowl Lake, Nooya Lake, Winstanley Lake, and Checats Lake Trails 

Cabin (1): Winstanley Island 

Buoys (3): Winstanley Trailhead, Winstanley Cabin, and Punchbowl Cove 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 48

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Land Status

National Forest System Lands: One encumbrance: A withdrawal for power site classification was issued 

for area around Punchbowl Creek.

Non-National Forest System Lands: None. 

Current Recreational Use and Setting

Rudyerd Bay is the most heavily visited area of Misty Fiords National Monument Wilderness. Eleven outfitter and 

guide sites and 20 dispersed recreation sites have been reported for this Use Area. Most dispersed sites have 

minimal impacts; four of them have moderate to high impacts. 

Area Attractions: Rudyerd Bay, including Punchbowl Cove; Shoalwater Pass; and Forest Service trails, cabins, 

shelters and buoys 

Guided Use: Average of about 100 guided visitor days annually. Activities include guided sea kayaking/camping, 

beach use, hiking, fishing, wildlife viewing, and black bear and brown bear hunting (including camping). 

Unguided Use: Boating, hiking, sea kayaking, camping, fishing, wildlife viewing, hunting, and cabin use. Checats 

and Nooya Lake Trails receive a low amount of use, Winstanley Lake Trail receives a moderate amount, and 

Punchbowl Lake Trail is the most popular trail in Misty Fiords National Monument Wilderness. Between 2008 and 

2009 an average of 9, 20, 44,and 182 visitors signed in at the trailhead registers for Nooya, Checats, Winstanley, 

and Punchbowl Lake Trails, respectively. The Winstanley Island public recreation cabin receives a high amount of 

use (most cabin use in Misty Fiords National Monument Wilderness), approximately half of which is by Alaskan 

residents. 

Resource Considerations* 

Botany: There are three rare and special concern plant populations documented in this recreational use area. The 

permit administrator will work with the District Botanist before issuing any new outfitter or guide permits or when 

the permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are nine invasive plant populations documented in this recreational use area. The 

permit administrator will work with the District Botanist before issuing any outfitter and guide permits in this area. 

A map of the location of the populations can be provided upon request. Please refer to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 13 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter and guide permits in this area. 

Recreation: Crowding is a concern in Rudyerd Bay, particularly Punchbowl Cove, and in the area surrounding 

Winstanley Island Cabin. Conflicts between different types of visitors (e.g. sea kayakers and motorized boaters, 

wildlife viewers and hunters) have been reported. Campers have reported having trouble finding an unoccupied 

camping site in Rudyerd Bay or sharing the site at Punchbowl Cove with one or two other groups. In addition, there 

is concern about impacts at Punchbowl Cove, including human waste, toilet paper, and trash in the area. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 49

____________________________________________________________ Draft Environmental Impact Statement
 Outfitters and guides will not displace unguided visitors and will conduct activities in a manner that 

minimizes impacts on other visitors, particularly at campsites. 

• Outfitters and guides are not authorized to use the Winstanley Island public recreation cabin or associated 

facilities (fire ring, firewood, buoy, and outhouse) OR to camp within 1⁄2 mile of the cabin. 

• When accessed by trail from saltwater, outfitter/guide use of Winstanley, Nooya, Checats, and Punchbowl 

Lakes will be included in the guided use allocations for this Use Area. Outfitter/guides will report 

hazardous trail conditions to the Forest Service immediately. 

• The Forest Service will increase efforts to educate overnight visitors about campsite locations in Rudyerd 

Bay. Monitoring will be conducted to ensure that encounters rates do not exceed two encounters per day 

per trip 80% of the time. Additional outfitter and guide use restrictions may be required if unguided use 

increases in the future. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: Motorized boat traffic, aircraft overflights, and saltwater landings (all activities outside of FS 

jurisdiction) have the potential to diminish wilderness character and opportunities for solitude in Rudyerd Bay. 

Management attempts to reduce the amount of floatplane landings in the Misty Core Lakes Use Area may have the 

undesirable affect of further encouraging floatplane traffic and landings in saltwater areas such as Rudyerd Bay. 

Encounter rates are currently below standard for this Use Area, but crowding and recreation use impacts at popular 

locations, such as Punchbowl Cove campsite, have the potential to diminish wilderness character and opportunities 

for solitude. 

Wildlife: Seabird colony present within Rudyerd Bay. Implement Forest Plan S&G for avoiding disturbance to 

seabird concentration areas by maintaining at least 1500 foot aircraft distance from colony and if possible avoid 

flying directly over colony. Regulate human use to maintain 820 foot no disturbance zone. 

Large grassy flats in Punchbowl and Rudyerd Bay provide habitat for migrating and wintering waterfowl. Lesser 

numbers are common throughout the summer. Prevent human disturbance October 1- April 30. 

Rudyerd Bay and Punchbowl Cove provide foraging habitat for bears with both brown bear and black bear 

common. Prevent disruption of bears during critical foraging periods (spring and salmon runs). Implement 

standards and guidelines for preventing human/bear conflicts. Avoid buzzing or approaching bears with aircraft or 

boats. 

Mountain goats are present on Checats Peak and subalpine/alpine ridges above Rudyerd Bay and Punchbowl and 

are particularly sensitive to disturbance during the winter through early summer kidding season. Avoid disturbance 

of goats from authorized aircraft by maintaining a minimum of 1,500 feet distance from goats and important goat 

habitat and avoiding flight paths over important habitat when possible. Recent research (Festa-Bianchet and Cote’ 

2008) recommends aircraft maintain greater distance than Forest Plan standards and guidelines; thus, maintaining a 

6,600-foot clearance from goats is recommended where terrain and weather permit. 

Marine mammals are commonly documented in the area including Steller sea lions, harbor seals, and killer whales. 

Follow all MMPA and whale regulations to minimize disturbance and maintain at least 100-yard distance from any 

marine mammal. 

Avoid all activities within 330 feet of nesting bald eagles from March1 – August 31. 

*District-wide resource considerations are included in the introduction to these cards. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 50

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Ketchikan

GRAVINA ISLAND

11 GRAVINA ISLAND Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles 09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data displayed 

on this map, and reserves the right to correct, 

update, modify, or replace thisinformation without 

notification.

Semi-Primitive Non-Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 51

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 11 GRAVINA ISLAND 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

538 0 0 3,253 0 0 468 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 0 SDs 

B 20 108 20 651 20 94 

C 50 269 50 1,627 50 234 

D 0 0 0 0 0 0 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This heavily-wooded area encompasses all of Gravina Island, as well as several smaller islands 

nearby. Gravina Island is characterized by several large bays and tall ridgelines running the length of the island. 

The area is primarily access via motorized boat or ferry / vehicle from Ketchikan. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): Scenic Viewshed, Timber Production, Semi-Remote Recreation and Old Growth 

Habitat 

Recreation Opportunity Spectrum (ROS) Classes: Roaded Modified, Semi-Primitive Motorized, Semi-Primitive 

Non-Motorized, Primitive, and Rural 

Communities: None. 

Forest Service Recreation Facilities

Cabin (1): Phocena Bay 

Buoy (1): Phocena Bay 

Land Status

National Forest System Lands: Two encumbrances: The areas surrounding Bostwick Inlet and two 

separate parcels around Dall Bay are part of a larger group of parcels being considered under Native 

Village Corporation Selection. The selection process has not been completed. The status of all three 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 52

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
parcels is pending. The State filed for Selection on the same small area around Dall Bay that has a Native 

Village Selection. Adjacent and in addition, the State selected a larger area surrounding Dall Bay for a 

proposed Dall Bay State Marine Park; the status is pending.

Non-National Forest System Lands: Private ownership parcels in Bostwick Inlet, Seal Cove, and Dall Bay. 

Current Recreational Use and Setting

There are 57 dispersed recreation sites in this Use area, seven of which are moderate to high impact. The moderate 

to high impact locations are concentrated in Bostwick Inlet, Seal Cove, and Dall Bay.

Area Attractions: Bostwick Bay, Phocena Bay, Black Sands Beach State Park (State of Alaska). 

Guided Use: No guided use between 2005 and 2009. 

Unguided Use: This area is easily accessed from the town of Ketchikan via motorized boat and is popular for 

unguided hunting, boating, crabbing, camping and fishing. Phocena Bay pubic recreation cabin receives a moderate 

amount of use, approximately 90% of which is by Alaskan residents. 

Area-specific Resource Considerations* 

Botany: There are 64 sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are nine invasive plant populations (4 TNF High Priority Invasives) documented in 

this recreational use area. The permit administrator will work with the District Botanist before issuing any outfitter 

and guide permits in this area. A map of the location of the populations can be provided upon request. Please refer 

to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 21 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: Concern that crowding will diminish the recreation experience, and cause additional dispersed 

recreation site impacts, in an area popular for unguided visitors and subsistence activities. Much of the activity in 

this use area is on saltwater; encounter rates are below standards established for the Semi-primitive Non-wilderness 

recreation opportunity zone. 

• Outfitters and guides will not displace unguided visitors and will conduct activities in a manner that 

minimizes impacts on other visitors. 

• No outfitter and guide use authorized on weekends or state and federal holidays. 

• No outfitter and guide use authorized along the shoreline between Bostwick Bay and Dall Head. 

• Phocena Bay public recreation cabin may be authorized for commercial use for a maximum 10 days per 

month (total between guides) and no guided use will be authorized on weekends or holidays. 

Subsistence, Traditional Use, and Personal Use: Gravina Island is a high subsistence use area for residents of 

Metlakatla and Saxman. Concern over these subsistence resources has been brought up at many public meetings 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 53

____________________________________________________________ Draft Environmental Impact Statement
and government to government consultations for other projects. Traditional access is by boat with the interior of the 

island used for deer hunting. 

Wilderness: N/A 

Wildlife: Class I streams including Bostwick and Vallenar provide foraging habitat for bears during salmon runs 

and help bears enter the winter in fit condition. Prevent disturbance of foraging bears and implement standards and 

guidelines for preventing human/bear conflicts. Avoid buzzing or approaching bears with aircraft or boats. 

High concentrations of bald eagles on Gravina. At least 75 known nests are present within the use area. Avoid 

activities within 330 feet of nesting eagles March1 – August 31. 

One active goshawk nest is known on Gravina; a second nest territory is possible from historic sightings. Prevent 

disturbance at all times and report any sightings and particularly attacks to KMRD biologist within 48 hours for 

follow-up. Maintain at least 600 foot distance from goshawks, further if they still exhibit signs of disturbance (divebombing, screeching). 

Humpback whales (endangered), Fin whales (endangered), minke whales, killer whales, and Steller sea lions 

(threatened) occur in the marine waters surrounding Gravina Island. Implement NMFS regulations and maintain at 

least 100-yard distance from any marine mammal. 

 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 54

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
BELL ISLAND

12 BELL ISLAND Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

Semi-Primitive Non-Wilderness 

Recreation Opportunity Zone

09/22/2010

The USDA Forest Service makes no 

warranty, expressed or implied, regarding 

the data displayed on this map, and 

reserves the right to correct, update, 

modify, or replace this information without 

notification.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 55

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 12 BELL ISLAND 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

1,159 11 51 7,006 149 224 1,008 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 275 SDs 

B 20 232 20 1,401 20 202 

C 50 580 50 3,503 50 504 

D 10 116 10 701 10 101 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses portions of the mainland to the north of Revilla Island, including Spacious 

Bay, Yes Bay, Bailey Bay, Short Bay, Anchor Pass and Bell Island. The area is characterized by multiple large 

lakes, including Lake McDonald, Lake Shelokum and Reflection Lake. The area is accessed by motorized boat and 

floatplane. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): Semi-Remote Recreation, Remote Recreation, Special Interest Area (Bailey Bay 

Hotsprings Recreation Area), Wild River (Wolverine Creek), Modified Landscape, Timber Production and Old 

Growth Habitat 

Recreation Opportunity Spectrum (ROS) Classes: Semi-Primitive Non-Motorized, Semi-Primitive Motorized, 

Primitive, Rural, and Roaded Natural 

Communities: None. 

Forest Service Recreation Facilities

Trails (4): McDonald Lake Trail, Lake Shelokum Trail, Reflection Lake Trail and Bell Island Trail 

Cabins (3): McDonald Lake, Reflection Lake, and Anchor Pass 

Shelters (2): McDonald Lake and Lake Shelokum 

Buoys (3): Anchor Pass, Short Bay, and Bailey Bay 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 56

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Land Status

National Forest System Lands: Three encumbrances: 1) A withdrawal was issued for the area surrounding Lake 

Shelokum/Shelokum Creek, Reflection Lake, Short Creek and East Fork Short Creek for power site classification in 

1927; the expiration date is indefinite. 2) In addition, a withdrawal for a new power site classification has been filed 

for the area surrounding Lake Shelokum/Shelokum Creek, Spring Creek, and Lake Maude/Maude Creek and is 

pending. Investigative surveys are scheduled to explore the feasibility of a hydropower project. 3) There is a 

withdrawal for Bluff Point Lighthouse Reserve, US Coast Guard. 

Non-National Forest System Lands: State of Alaska – Parcel on south side of Spacious Bay and Square Island. 

Private ownership parcels at Yes Bay and Bell Island 

Current Recreational Use and Setting

Eighteen outfitter and guide locations and 15 dispersed recreation sites have been reported in this Use Area. 

Dispersed recreation sites are concentrated in Yes Bay, Bailey Bay, and Short Bay and most are minimally 

impacted. Three of the sites in Yes Bay and Spacious Bay, and areas surrounding public recreation cabins, have 

moderate to high impacts. 

Area Attractions: Forest Service cabins, shelters and buoys; Bailey Bay Hotsprings; Yes Bay Lodge; Anchor Pass 

and Short Bay 

Guided Use: Approximately 150 visitor service days annually. Activities include guided black bear, brown, bear, 

and mountain goat hunting (with camping), beach use, fishing, hiking, and camping. Guided use is concentrated at 

the following locations: McDonald Lake, Walker Creek Lake, Reflection Lake, Wolverine Creek and Bailey Bay 

Hotsprings. 

Unguided Use: This area is used by unguided visitors for fishing, hiking, camping, cabin use and subsistence 

dipnetting. Reflection Lake Trail receives a low amount of use (an average of 17 visitors per summer signed in at 

the trailhead register in 2009 and 2010). McDonald Lake Trail received a moderate amount of use for a remote trail, 

with an average of 70 visitors signing in each summer. Lake Shelokum Trail is the most popular remote trail on the 

KMRD; an average of 182 visitors signed in at the trailhead register during the summers of 2009 and 2010 and 

approximately 45% were overnight visitors. The MacDonald public recreation cabin is the second most popular 

cabin on the KMRD and 65% of the use is by non-residents. MacDonald Lake and Reflection Lake public 

recreation cabins are popular destinations for unguided non-residents who are attracted to the fishing opportunities 

provided in the area. Reflection Lake and Anchor Pass cabins receive a moderate amount of use. Seventy-six 

percent of the use at Anchor Pass is by Alaska residents and kayakers and boaters use the cabin on a regular basis 

without making reservations. 

Resource Considerations*

Botany: Please refer to the unit card introduction. 

 

Invasive Plant Species: There are two invasive plant populations ( one TNF High Priority Invasive) documented in 

this recreational use area. The permit administrator will work with the District Botanist before issuing any outfitter 

and guide permits in this area. A map of the location of the populations can be provided upon request. Please refer 

to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 57

____________________________________________________________ Draft Environmental Impact Statement
Heritage: There are 38 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: Social conditions within the use area are well within the standards established for the primitive nonwilderness recreation opportunity zone. There is a concern that crowding and noise from floatplane traffic will 

diminish the recreation experience in the Bell Island Use Area.

• Outfitters and guides will not displace unguided visitors and will conduct activities in a manner that 

minimizes impacts on other visitors. Monitoring will be conducted to ensure that encounter rates do not 

exceed two encounters per day during trip 80% of the time. 

• Bailey Bay Hotsprings: 1) No guided use authorized on weekends or State and federal holidays; 2) Guided 

overnight use is limited to two consecutive (weekday) nights; and 3) outfitter and guide groups will limit 

their amount of time in the hotsprings when other visitors are waiting. 

• Anchor Pass and Reflection Lake public recreation cabins may be authorized for commercial use. Each 

cabin will only be authorized for a maximum 10 days per month (total between guides) and no guided use 

will be authorized on weekends or holidays. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: N/A 

Wildlife: Humpback whales (endangered), Steller sea lions (threatened), and harbor seals occur in the marine 

waters adjacent to the Bell Island recreation use area. Implement MMPA, ESA, and whale regulations and viewing 

guidelines to minimize disturbance when accessing the area and maintain at least 100-yard distance from any 

marine mammal. 

Yellow-billed loons (candidate species under ESA) have been documented in Anchor Pass during the summer. 

Protected coastal waters are used during migration and winter season and loons may be present during Fall, Winter, 

and Spring recreational use seasons. Prevent disturbance at all times and report any sightings to KMRD biologist 

within 48 hours for follow-up. 

Goshawks have been observed near McDonald Lake and at Lake Shelokum. Maintain at least 600 foot distance 

from nesting goshawks; report any sightings or attacks to KMRD biologist within 48 hours for follow-up. 

Spacious Bay, Bell Arm, Anchor Pass, and McDonald Lake are significant waterfowl and swan wintering areas. 

Avoid disturbance October 1 through April 30. 

Spacious Bay is an important foraging area for bears in the spring and during the salmon run. Both brown and black 

bears occur on the Cleveland Peninsula and Bell Island. Bell Island is an above average brown bear area. Other 

Class I streams also provide foraging habitat during salmon runs and help bears enter the winter in fit condition. 

Prevent disturbance of foraging bears and implement standards and guidelines for preventing human/bear conflicts. 

Avoid buzzing or approaching bears with aircraft or boats. 

Mountain goats area present on alpine/subalpine ridges. Area below Yes Bay is closed to hunting due to population 

concerns; area north of Yes Bay is open. Avoid approaching goats during any activity except permitted hunting. 

Mountain goats are particularly sensitive to disturbance during the winter through early summer kidding season. 

Avoid disturbance of goats from authorized aircraft by maintaining a minimum of 1,500 feet distance from goats 

and important goat habitat and avoiding flight paths over important habitat when possible. Recent research (FestaBianchet and Cote’ 2008) recommends aircraft maintain greater distance than Forest Plan standards and guidelines; 

thus, maintaining a 6,600-foot clearance from goats is recommended where terrain and weather permit. 

 

Wolverine have been observed near Lake Shelokum falls. This species is very uncommon on KMRD; report any 

sightings for documentation and follow-up. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 58

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
At least 19 bald eagle nests are present within the use area. Avoid activities within 330 feet of nesting eagles 

March1 – August 31. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 59

____________________________________________________________ Draft Environmental Impact Statement
EAST CLEVELAND

13 EAST CLEVELAND Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data displayed 

on this map, and reserves the right to correct, 

update, modify, or replace thisinformation without 

notification.

Semi-Primitive Non-Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 60

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 13 EAST CLEVELAND 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

628 3 9 3,795 52 221 546 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 230 SDs 

B 20 126 20 759 20 109 

C 50 314 50 1,898 50 273 

D 5 31 5 190 5 27 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the southeastern portion of the Cleveland Peninsula including Camaano Point, 

Helm Bay and Port Stewart. The area is heavily forested and includes many small lakes. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): Semi-Remote Recreation, Old Growth Habitat, Timber Production and Modified 

Landscape 

Recreation Opportunity Spectrum (ROS) Classes: Primitive and Semi-Primitive Motorized 

Communities: None. 

Forest Service Recreation Facilities 

Cabins (2): Helm Bay, Helm Creek 

Buoys (2): Helm Creek, Smugglers Cove 

Dock (1): Helm Bay Cabin (owned and maintained by State of Alaska) 

Land Status

National Forest System Lands: One encumbrance: A withdrawal was issued for Caamano Point Light House 

Reserve, US Coast Guard. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 61

____________________________________________________________ Draft Environmental Impact Statement
Non-National Forest System Lands: Private ownership parcels on Smugglers Creek, Helm Bay and Granite Creek 

Current Recreational Use and Setting

Area Attractions: Helm Bay, Smugglers Cove, Forest Service cabins and buoys, Port Stewart, Bond Bay and 

Camaano Point 

Commercial Use: Although charter fishing is popular in the bays of this area, only a small amount of guided 

fishing and beachcombing occur along the shoreline. 

Other Recreational Use: Fishing, crabbing, boating, hunting, cabin use, and camping. Helm Bay and Helm Creek 

cabins are popular with unguided residents year-round. Several moderate to high-impact recreation sites have been 

documented in this area. 

Resource Considerations* 

Botany: There is one sensitive plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

population can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 19 invasive plant populations (one TNF High Priority Invasive) documented in 

this recreational use area. The permit administrator will work with the District Botanist before issuing any outfitter 

and guide permits in this area. A map of the location of the population can be provided upon request. Please refer 

to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 26 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: Concern about social conditions in areas heavily used by the unguided public, particularly Helm Bay 

south to Camaano Point. Social encounters for this area fall far below standard. There are 5 Outfitter-Guide sites 

where activities conducted include camping, nature tours, and black bear hunting. There are 35 existing and 10 

reported dispersed recreation sites, and 8 of them are moderate-high impact (these sites are scattered not 

concentrated in any one area). The Helm Bay cabin receives very high use and the Helm Creek cabin receives high 

use. 

Design Element: 

 No guided use will be authorized along the shoreline between Helm Bay and Camaano Point 

Subsistence, Traditional Use, and Personal Use: Area is very popular with local residents for hunting (deer, 

bear) and gathering of intertidal/beach resources. 

Wilderness: N/A 

Wildlife: 

Very high concentration of bald eagle nests between Helm Bay and Port Stewart and around Bond Bay. At least 74 

known nests are present within the use area. Avoid activities within 330 feet of nesting eagles March1 – August 31. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 62

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Helm Bay and Smugglers Cove are important waterfowl wintering area. Port Steward contains similar high quality 

intertidal areas; although high use is not documented, it likely occurs. Prevent human disturbance October 1- April 

30. 

Intertidal areas in Port Stewart, Helm Bay, Raymond Cove provide brown bear foraging areas in the spring; the 

numerous Class I anadromous streams in these areas, Smugglers Cove and Granite Creek provide important 

foraging areas during the salmon run. Limit human/bear interactions and conflicts. Black bears are also present in 

areas such as Bond Bay; they are likely displaced from prime foraging areas by brown bears. Avoid buzzing or 

approaching bears with aircraft or boats. 

Mountain goats occur in small family groups on the major peaks and subalpine/alpine ridges. All goat hunting 

seasons are currently closed within this portion of the Cleveland due to conservation concerns. Mountain goats are 

particularly sensitive to disturbance during the winter through early summer kidding season. Avoid disturbance of 

goats from authorized aircraft by maintaining a minimum of 1,500 feet distance from goats and important goat 

habitat and avoiding flight paths over important habitat when possible. Recent research (Festa-Bianchet and Cote’ 

2008) recommends aircraft maintain greater distance than Forest Plan standards and guidelines; thus, maintaining a 

6,600-foot clearance from goats is recommended where terrain and weather permit. 

Steller sea lions, humpback whales, and killer whales are common and can be impacted by outfitter-guide activities 

in the marine waters surrounding East Cleveland. Fin whales, harbor seals, Dall’s porpoise, harbor porpoise, and 

Pacific white-sided dolphins also occur. Implement ESA and NMFS regulations and maintain at least 100-yard 

distance from any marine mammal. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 63

____________________________________________________________ Draft Environmental Impact Statement
Meyers Chuck

WEST CLEVELAND

14 WEST CLEVELAND Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles 09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data 

displayed on this map, and reserves the right

to correct, update, modify, or replace this

information without notification.

Semi-Primitive Non-Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 64

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 14 WEST CLEVELAND 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

359 2 4 2,168 5 9 312 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 13 SDs 

B 30 108 30 651 30 94 

C 50 180 50 1,084 50 156 

D 15 54 15 325 15 47 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the western portion of the Cleveland Peninsula, including several large bays 

(Emerald Bay, Vixen Inlet and Union Bay). The interior portion is heavily forested with several small lakes. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): Semi-Remote Recreation, Old Growth Habitat, Timber Production and Modified 

Landscape 

Recreation Opportunity Spectrum (ROS) Classes: Primitive, Semi-Primitive Non-Motorized, Semi-Primitive 

Motorized, Rural 

Communities: Meyers Chuck 

Forest Service Recreation Facilities

Trail (1): Meyers Chuck Trail

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 65

____________________________________________________________ Draft Environmental Impact Statement
Land Status

National Forest System Lands: One encumbrance: A single withdrawal was issued for two lighthouse locations 

within West Cleveland, Caamano Point Light House Reserve and Niblack Point Lighthouse Reserve, US Coast 

Guard.

Non National Forest System Lands: State of Alaska –Vixen Harbor. Sealaska Corporation – Parcel south of 

Meyers Chuck along Clarence Strait. Private Ownership – Community of Meyers Chuck, a small tract south of 

Meyers Chuck, and several parcels in the Union Bay area 

Current Recreational Use and Setting

Two outfitter and guide locations and 15 dispersed recreation sites have been reported for this area. Most dispersed 

sites have minimal impacts; one site near Lemesurier Point has moderate to high impacts.

Area Attractions: Union and Emerald Bay and Vixen Inlet; anchorage in Vixen Harbor; community of Meyers 

Chuck 

Commercial Use: Very small amount of guided fishing and black bear and brown bear hunting (day use) in Union 

and Emerald Bays and Vixen Inlet. 

Other Recreational Use: Hunting, camping and recreational use of beaches in Union and Emerald Bays, Vixen 

Inlet, and on Sunshine Island. Multiple low-impact recreation sites and camps recorded. 

Resource Considerations* 

Botany: There are six sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 22 invasive plant populations (7 TNF High Priority Invasives) documented in 

this recreational use area. The permit administrator will work with the District Botanist before issuing any outfitter 

and guide permits in this area. A map of the location of the populations can be provided upon request. Please refer 

to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. The majority of 

fisheries in this area are covered by the Petersburg-Wrangell ADF&G management area. 

Heritage: There are 18 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: Meyers Chuck residents have expressed concern that guided groups may diminish the recreation 

experience in the area. Encounter rates are far below standards. 

• Outfitters and guides will conduct operations in a manner that minimizes impacts on unguided visitors. 

Subsistence, Traditional Use, and Personal Use: Meyers Chuck residents have expressed concern that guided 

groups may diminish the opportunities for fishing, hunting, and subsistence activities in the area. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 66

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Wilderness: N/A 

Wildlife: Steller sea lions, humpback whales, and killer whales are common and can be impacted by outfitter-guide 

activities in the marine waters surrounding East Cleveland. Fin whales, harbor seals, Dall’s porpoise, harbor 

porpoise, and Pacific white-sided dolphins also occur. A sea lion haulout occurs on Easterly Island opposite 

Emerald Bay. Implement ESA and NMFS regulations and maintain at least 100-yard distance from any marine 

mammal. 

Mountain goats occur in small family groups on the major peaks and subalpine/alpine ridges. All goat hunting 

seasons are currently closed within this portion of the Cleveland due to conservation concerns. Mountain goats are 

particularly sensitive to disturbance during the winter through early summer kidding season. Avoid disturbance of 

goats from authorized aircraft by maintaining a minimum of 1,500 feet distance from goats and important goat 

habitat and avoiding flight paths over important habitat when possible. Recent research (Festa-Bianchet and Cote’ 

2008) recommends aircraft maintain greater distance than Forest Plan standards and guidelines; thus, maintaining a 

6,600-foot clearance from goats is recommended where terrain and weather permit. 

Vixen Inlet and Union Bay are significant waterfowl wintering and migration areas. Limit disturbance October 1 

through April 30. 

Intertidal areas and Class I anadromous streams in Emerald Bay, Vixen Inlet, and Union Bay provide important 

brown bear foraging areas in the spring and during the salmon run. Black bears are also present; they are likely 

displaced from prime foraging areas by brown bears. Prevent disturbance of foraging bears and implement 

standards and guidelines for preventing human/bear conflicts. Limit human/bear interactions and avoid buzzing or 

approaching bears with aircraft or boats. 

High concentrations of bald eagles occur all along the shore line of this recreation use area. At least 120 nests have 

been documented. Avoid activities within 330 feet of eagle nests during the breeding season March1 – August 31. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 67

____________________________________________________________ Draft Environmental Impact Statement
WILSON BAKEWELL

15 WILSON BAKEWELL Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles 09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data 

displayed on this map, and reserves the right

to correct, update, modify, or replace this

information without notification.

Semi-Primitive Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 68

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 15 WILSON / BAKEWELL 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

255 0 0 1,543 35 54 222 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 54 SDs 

B 20 51 20 309 20 44 

C 50 128 50 771 50 111 

D 15 38 15 231 15 33 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: National Monument (Non-Wilderness) shoreline lands surrounding Wilson and Bakewell 

Arms as well as the Quartz Hill mine access road corridor 

Recreation Opportunity Zone: Semi-Primitive Wilderness (SPW)

Land Use Designations (LUDs): Non-Wilderness Monument 

Recreation Opportunity Spectrum (ROS) Class: Semi-Primitive Non-Motorized and Roaded Natural 

Communities: None

Forest Service Recreation Facilities

Trailhead (1): Bakewell Lake Trail 

Land Status

National Forest System Lands: No encumbrances

Non-National Forest System Lands: Private ownership parcel at Quartz Hill (mining patent). 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 69

____________________________________________________________ Draft Environmental Impact Statement
Current Recreational Use and Setting

Area Attractions: Wilson Arm, Bakewell Arm, Wilson River, and Blossom River. Remote road system.

Commercial Use: Average of 31 visitors annually for guided black bear and brown bear hunting, fishing, 

beach use, and hiking.

Other Recreational Use: This area is use by unguided visitors for fishing, boating, hunting, and hiking. 

Bakewell Lake Trail receives a low amount of use; in 2009, 16 visitors signed in to the Bakewell Lake 

trailhead register, none of which were overnight visitors. 

Resource Considerations* 

Botany: Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 25 invasive plant populations (20 TNF High Priority Invasives) 

documented in this recreational use area. The permit administrator will work with the District Botanist 

before issuing any outfitter and guide permits in this area. A map of the location of the populations can 

be provided upon request. Please refer to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 6 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter and guide permits in 

this area. 

Recreation: Social conditions in this use area are well within standards established for the Semi-primitive 

Wilderness Zone. 

• When accessed by trail from saltwater, outfitter and guide use of Bakewell Lake will be included 

in the guided use allocations for this area. Outfitters and guides will report hazardous trail 

conditions to the Forest Service immediately. 

• The fisheries enhancement project in Bakewell Lake may result in increased demand for guided 

opportunities in this area in the future. While the trail provides infrastructure to support additional 

use, encounter rates should continue to be monitored. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: This area is not part of the Misty Fiords National Monument Wilderness, but is part of the 

semi-primitive wilderness recreation opportunity zone. This is consistent with Forest Plan direction to 

“provide the same natural settings and recreation experiences as the adjacent Wilderness National 

monument areas.” Encounter rates for this area are far below standard and excellent opportunities exist 

for solitude and unconfined recreation. 

Wildlife: Wilson Arm and Bakewell Arm estuaries and grass flats are important foraging areas for bears 

and wintering area for trumpeter swans and other waterfowl. Avoid human/bear interactions and 

disrupting foraging bears by approaching on foot, in boats, or in airplanes or by “buzzing” bears with 

aircraft. 

Prevent disturbance to wintering waterfowl and shorebirds from October 1- April 30. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 70

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
High concentration of eagle nests around Wilson Arm estuary. At least 28 known nests are present. Avoid 

disturbance within 330 feet of eagles during the nesting season March 1-August 31. 

Mountain goats are present in subalpine/alpine habitat and are particularly sensitive to disturbance during 

the winter through early summer kidding season. Avoid disturbance of goats from aircraft by maintaining 

a minimum of 1,500 feet distance from goats and important goat habitat and avoiding flight paths over 

important habitat when possible. Recent research (Festa-Bianchet and Cote’ 2008) recommends aircraft 

maintain greater distance than Forest Plan standards and guidelines; thus, maintaining a 6,600-foot 

clearance from goats is recommended where terrain and weather permit. 

Marine mammals including humpback whales are present. Implement NMFS regulations and maintain at 

least 100-yard distance from any marine mammal. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 71

____________________________________________________________ Draft Environmental Impact Statement
Ketchikan

KETCHIKAN CORE SPNW

KETCHIKAN CORE SPNW

KETCHIKAN CORE SPNW

16 KETCHIKAN 

CORE SPNW

Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data displayed 

on this map, and reserves the right to correct, 

update, modify, or replace thisinformation without 

notification.

Semi-Primitive Non-Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 72

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 16 KETCHIKAN CORE SPNW 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

179 0 0 1,084 1 6 156 1 6 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 12 SDs 

B 30 54 30 325 30 47 

C 50 90 50 542 50 78 

D 10 18 10 108 10 16 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the undeveloped areas surrounding the City of Ketchikan and includes the 

coastal area from Moser Bay south to Mountain Point. The area also includes the western shoreline of George 

Inlet. Much of this area is under Non-Forest Service ownership. Other portions of the area are relatively 

inaccessible. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): LUD II, Modified Landscape, Municipal Watershed, Old Growth Habitat, SemiRemote Recreation, Scenic Viewshed and Timber Production 

Recreation Opportunity Spectrum (ROS) Classes: Rural, Roaded Modified, Roaded Natural, Semi-Primitive 

Motorized and Semi-Primitive Non-Motorized 

Forest Service Recreation Facilities

Trails (1): Wolf Lake Trail 

Shelter (1): Wolf Lake 

Land Status

National Forest System Lands: Eight encumbrances: 

1) AKAA 006986B & 2) AKAA006986C Native Village Selections around First and Second Waterfall and Lunch 

Creek areas; 

3)AKAA 056925 A withdrawal around Upper and Lower Ketchikan Lakes for active FERC project P-420; 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 73

____________________________________________________________ Draft Environmental Impact Statement
4) AKAA 056924 Withdrawal by special act - Ketchikan Watershed Reserve PLO 76-240, dated 7/27/39 – 

indefinite expiration; 

5) AKAA 082596 A withdrawal around Whitman Lake for active FERC project 11841; 

6) AKAA 006986A Native Village Selection in Section 1 (area between Mahoney Lake and Lower Silvis Lake); 

7) AKAA 006986C Native Village Selection around Upper Mahoney Lake, drainage to Mahoney Lake and south 

of Mahoney Lake; 

8) AKAA 076694A A withdrawal around Upper Mahoney Lake and drainage to Mahoney Lake for FERC project 

P-11393. 

Non-National Forest System Lands: In the following areas, NFS lands are bordered by: 1) Naha Bay and Mosier 

Bay area – State of Alaska and Ketchikan Gateway Borough; 2) First and Second Waterfall Creek - Cape Fox 

Village Corporation; 3) Whipple Creek area – Cape Fox Village Corporation and State of Alaska; 4) Ward Creek 

north of Talbot Lake to Harriet Hunt and White River - Cape Fox Village Corporation and State of Alaska; 5) 

Mahoney Lake – Cape Fox Corporation; 6) Ketchikan Lakes area – BLM and State of Alaska entities; 7) Whitman 

Lake area – State of Alaska and private parcels. 

Current Recreational Use and Setting

Two outfitter and guide locations have been reported in this area. No dispersed recreation sites have been reported, 

but campsite inventories have not been completed in this area. 

Area Attractions: Moser Bay; alpine accessed by Ketchikan road system and trails (Mahoney Lake basin and 

Brown Mountain) 

Commercial Use: Very small amount of guided hiking (Brown Mountain) and mountain goat hunting with 

camping (Mahoney Mountain). 

Other Recreational Use: Hunting, hiking, snowshoeing, snowmachining and backcountry skiing. Unguided use is 

likely concentrated in alpine areas accessed by the Ketchikan-area trail system. 

Resource Considerations* 

Botany: There are 12 sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 142 invasive plant populations (32 TNF High Priority Invasives) documented in 

this recreational use area. The permit administrator will work with the District Botanist before issuing any outfitter 

and guide permits in this area. A map of the location of the populations can be provided upon request. Please refer 

to the unit card introduction 

Fisheries/Hydrology: This Use Area contains the municipal watershed for Ketchikan. The watershed is one of 

three congressionally designated municipal watersheds on the Tongass National Forest. There are no known 

concerns with current level of outfitter and guide use or locations. Following Forest Plan direction will minimize or 

negate potential impacts to water resources. 

Heritage: There are 12 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: This area is primarily accessible via the Ketchikan-area trail system (Ketchikan Core NA Use Area), 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 74

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
where guided use is prohibited on all trails except Ward Creek Trail, Connell Lake Trail, and Lunch Creek Trail. 

Concern that an increase in guided use of this area is not compatible with maintaining social conditions along 

access trails. There is no social encounter monitoring data for this area. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wildlife: Mountain goats occur on most of the alpine/subalpine ridges including Diana Mountain, Dude Mountain, 

John Mountain, Mahoney Mountain, Brown Mountain, and Deer Mountain. Avoid disturbing goats winter through 

early summer kidding season. Avoid approaching goats at all times or getting within close enough range during any 

activity (except permitted hunts) that causes goats to exhibit fright/flight behavior. FAA regulations (14 CFT Part 

93) for air traffic in the vicinity of the Ketchikan International Airport may result in planes within 1,500 feet of 

goats in the Deer Mountain-Fawn Mountain vicinity. In other areas, avoid disturbance of goats from authorized 

aircraft by maintaining a minimum of 1,500 feet distance from goats and important goat habitat and avoiding flight 

paths over important habitat when possible. Recent research (Festa-Bianchet and Cote’ 2008) recommends aircraft 

maintain greater distance than Forest Plan standards and guidelines; thus, maintaining a 6,600-foot clearance from 

goats is recommended where terrain and weather permit. 

Black bears are present throughout area. Implement Forest Plan Standards and Guidelines and bear viewing 

etiquette to avoid human/bear conflicts. Class I streams provide foraging habitat during salmon runs and help bears 

enter the winter in fit condition. Grassy areas provide important spring forage as bears emerge from their dens. 

Prevent disturbance of foraging bears and implement standards and guidelines for preventing human/bear conflicts. 

Avoid buzzing or approaching bears with aircraft or boats. 

Concentrations of bald eagle nests occur in George Inlet and near Moser Bay, but occur throughout the use area. 

Approximately 30 nests have been documented. Avoid activities within 330 feet of bald eagle nests during the 

breeding season March1 – August 31. 

Marine mammals including humpback whales, Steller sea lions, harbor seals, and elephant seals are present in West 

Behm Canal within the use area. Implement ESA and NMFS regulations and maintain at least 100-yard distance 

from any marine mammal. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 75

____________________________________________________________ Draft Environmental Impact Statement
GEORGE CARROLL THORNE

GEORGE CARROLL THORNE

17 GEORGE CARROLL THORNE Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 42

Miles 09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data displayed 

on this map, and reserves the right to correct, 

update, modify, or replace thisinformation without 

notification.

Semi-Primitive Non-Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 76

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 17 GEORGE CARROLL THORNE 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

718 4 19 4,337 166 792 624 <1 2 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 813 SDs 

B 30 215 75 3,253 30 187 

C 50 360 50 2,169 50 312 

D 30 215 50 2,169 30 187 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the southern (unroaded) portion of Revilla Island. Prominent bays and 

waterways include George Inlet, Carroll Inlet and Thorne Arm. The Fish Creek drainage is a designated Wild and 

Scenic River Candidate. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): LUD II, Modified Landscape, Old Growth Habitat, Remote Recreation, SemiRemote Recreation, Scenic Viewshed, Timber Production, Wild River (Fish Creek) 

Recreation Opportunity Spectrum (ROS) Classes: Primitive, Roaded Modified, Roaded Natural, Semi-Primitive 

Motorized, Semi-Primitive Non-Motorized 

Communities: None. 

Forest Service Recreation Facilities

Trails (3): Low Lake/Big Lake Trail, Gokachin Lakes Trail and Black Mountain Trail

Public Recreation Cabins (1): Fish Creek 

Buoys (4): Fish Creek, Sealevel Mine, Icehouse Cove and Osten Island (Carroll Inlet) 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 77

____________________________________________________________ Draft Environmental Impact Statement
Land Status

National Forest System Lands: Two encumbrances: 1) The northwest end of Bold Island is being considered 

under Native Village Corporation Selection. The selection process has not been completed. 2) A withdrawal was 

issued for Angle Point Lighthouse Reserve (EO3406) on the southwest end of Bold Island, US Coast Guard. 

Non-National Forest System Lands: State of Alaska - area surrounding Swan Lake and outlet, parcel surrounding 

cove north of Bold Island, and additional parcel in Icehouse Cove (north of Cynthia Island). 

Private ownership – Marble Creek, Gokachin Creek (Sealevel Mine), parcel north of Moth Bay, two parcels, one 

east and one north of Cynthia Island. NFS lands are adjacent to State of Alaska and Cape Fox Corporation lands 

which bound George Inlet. 

Current Recreational Use and Setting

Six outfitter and guide use locations and 25 dispersed recreation sites have been documented in this area. Most 

dispersed sites have minimal impacts; three of the sites are moderate to high impact. 

Area Attractions: Forest Service cabins and buoys; Fish Creek System, George and Carroll Inlets 

Commercial Use: Average of about 200 visitors annually for guided beach tours (Lucky Cove and California 

Head), black bear hunting (with camping), flightseeing landing tours (Lost Lake) and fishing (Sea Level Creek). 

Other Recreational Use: Unguided boating, hunting, fishing, shrimping, hiking and crabbing. This area, 

particularly Fish Creek and Carroll Inlet, is popular with unguided visitors throughout the year. The 2009 Big Lake 

/ Low Lake Trail data shows 27 groups (for a total of 76 visitors), 48% of which were camping. Fish Creek cabin is 

the most popular cabin on the KMRD and 80% of the reservations are made by Alaska residents. 

Resource Considerations* 

Botany: There are eight sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: Please refer to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 30 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: Concern that crowding will diminish the recreational experience, particularly in popular locations and 

fishing streams (e.g. Fish Creek cabin area and Carroll Creek). Despite localized concerns about crowding, 

encounter rates for this area are far below standards for the semi-primitive non-wilderness zone. 

• Outfitters and guides are not authorized to use the Fish Creek public recreation cabin or associated facilities 

(fire ring, firewood, buoy, and outhouse) or to camp within 1⁄2 mile of the cabin. 

• No outfitter and guide use authorized on the Low Lake/Big Lake Trail or Gokachin Trail on weekends or 

holidays. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 78

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
• When accessed by trail from Thorne Arm, outfitter and guide use of Big Lake and Gokachin Lakes will be 

included in the guided use allocation for the George Carroll Thorne Use Area. 

Subsistence, Traditional Use, and Personal Use: Area is used extensively for subsistence by Saxman residents. 

Wilderness: N/A 

Wildlife: Upper Carroll, upper Thorne, and upper George Inlet estuary zones/grassy flats are significant waterfowl 

and shorebird and trumpeter swan wintering areas; they also provide resting and foraging habitat during migration. 

Avoid disturbance to wintering birds October 1- April 30 in accordance with WILD1.XII. (FP pg. 4-94) and 

WILD4.II.B (FP pg. 4-100). 

Yellow-billed loons (candidate species under ESA) have been documented in the summer. Protected coastal waters 

are used during migration and winter season and loons may be present during Fall, Winter, and Spring recreational 

use seasons. Prevent disturbance at all times and report any sightings to KMRD biologist within 48 hours for 

follow-up. 

Goshawk nests are documented in this area. Prevent all disturbance within a minimum of 600 feet at all times and 

report any sightings and particularly attacks to KMRD biologist within 48 hours for follow-up. 

Upper Carroll estuary zone/grassy flats is important to black bears during critical life stages. Other Class I streams 

provide foraging habitat during salmon runs. Recommend limiting guided use within the estuary zone Spring 

season - June 15 and mid-July through Fall. Prevent disturbance of foraging bears and implement standards and 

guidelines for preventing human/bear conflicts. Avoid buzzing or approaching bears with aircraft or boats. 

Mountain Goats are present on subalpine/alpine ridges, including a large population on the ridges above Swan 

Lake. Mountain goats are particularly sensitive to disturbance during the winter through early summer kidding 

season. Avoid disturbance of goats from authorized flight seeing activities by maintaining a minimum of 1,500 feet 

distance from goats and important goat habitat and avoiding flight paths over important habitat when possible. 

Recent research (Festa-Bianchet and Cote’ 2008) recommends aircraft maintain greater distance than Forest Plan 

standards and guidelines; maintaining a 6,600-foot clearance from goats is recommended where terrain and weather 

permit. 

Seals are common in the area with many small islands used as haulouts. Steller sea lions (threatened), humpback 

whales (endangered), and Dall’s porpoise also inhabit these waters. Avoid disturbance in accordance with ESA, 

MMPA and whale regulations. Maintain at least 100-yard distance from any marine mammal. 

Over 100 bald eagle nests have been documented within this use area. Avoid activities within 330 feet of bald eagle 

nests during the breeding season March1 – August 31.

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 79

____________________________________________________________ Draft Environmental Impact Statement
CENTRAL REVILLA SPNW

18 CENTRAL REVILLA SPNW Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles 09/22/2010

The USDA Forest Service makes no warranty, expressed or 

implied, regarding the data displayed on this map, and 

reserves the right to correct, update, modify, or replace this 

information without notification.

Semi-Primitive Non-Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 80

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 18 CENTRAL REVILLA SPNW 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

635 0 0 3,836 9 18 552 <1 1 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 19 SDs 

B 30 190 30 1,151 30 166 

C 50 360 50 1,918 50 276 

D 30 190 30 1,151 30 166 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the unroaded portion of Revilla Island stretching from Gedney Pass 

south to Naha Bay. The area is characterized by several small lakes, including Patching Lake in the Naha 

River drainage. The area also includes the unroaded portions of Neets Bay and Traitor’s Cove and land 

surrounding Indian Point. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): LUD II, Wild River (Upper Naha River Drainage, including Patching, 

Chamberlain, Snow and Orton Lakes), Modified Landscape, Old Growth Habitat, Semi-Remote 

Recreation, and Timber Production

Recreation Opportunity Spectrum (ROS) Class: Semi-Primitive Non-Motorized and Roaded Modified 

Communities: Loring, AK

Forest Service Recreation Facilities

Cabin (1): Patching Lake

Land Status

National Forest System Lands: No encumbrances 

Non-National Forest System Lands: State of Alaska –parcel at the head of Neets Bay and Virgin Bay 

in Traitors Cove. Sealaska Corporation – parcel at Indian Point. Private ownership – community of 

Loring. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 81

____________________________________________________________ Draft Environmental Impact Statement
Current Recreational Use and Setting

Four outfitter and guide locations and five dispersed recreation sites have been recorded in this area. Most 

dispersed sites have minimal impacts; one at Bishop Mine has moderate to high impacts. 

Area Attractions: Neets Bay and Traitors Cove; Patching Lake; Loring, AK

Commercial Use: Average of seven visitors for guided black bear and goat hunting (with camping) and 

fishing (Patching Lake). In 1997, an environmental assessment was completed for non-consumptive 

commercial guiding in the Naha Recreation Area and a decision was made not to authorize guided use in 

the Naha River drainage, which includes Patching Lake. In recent years, there has been interest in 

allowing guided use at Patching Lake, which would provide a recreational opportunity close to town with 

minimal impacts to unguided visitors. 

Other Recreational Use: Wildlife viewing, fishing, boating, hunting, and camping. Patching Lake cabin 

receives low to moderate use and is reserved an average of 26 nights per year; 70% of this use is by 

Alaskan residents. 

Resource Considerations* 

Botany: There are 18 sensitive and rare plant populations documented in this recreational use area. The 

permit administrator will work with the District Botanist before issuing any new outfitter or guide permits 

or when the permit holder asks for an increase in the number of authorized days in this area. A map of 

the location of the populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There is one invasive plant population (TNF High Priority Invasive) documented 

in this recreational use area. The permit administrator will work with the District Botanist before issuing 

any outfitter and guide permits in this area. A map of the location of the population can be provided upon 

request. Please refer to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter / guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 15 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter and guide permits in 

this area.

Recreation: Concern that allocating guided use at Patching Lake will contribute to noise levels from 

floatplane traffic in the Naha River drainage, a popular recreation area. There is no social encounter 

monitoring data for this area. 

• Outfitters and guides accessing Patching Lake via floatplane will avoid flying over the Naha 

River Drainage to minimize noise impacts on this popular recreation area. 

• Patching Lake public recreation cabin may be authorized for commercial use. The cabin will be 

authorized for a maximum 10 days per month (total between guides) and no guided use will be 

authorized on weekends or holidays. 

Subsistence, Traditional Use, and Personal Use: This area is heavily used by Ketchikan hunters 

(WAA where residents obtain 75% of deer). Access from the beach or off the adjacent road system. 

Wilderness: N/A 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 82

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Wildlife: 

Mountain goats are present in subalpine/alpine habitat near Orchard and Carroll creeks and Rowena Lake. 

Goats are particularly sensitive to disturbance during the winter through the kidding season. Avoid 

disturbance from authorized aircraft and activities in the alpine. Avoid disturbance of goats from 

authorized aircraft by maintaining a minimum of 1,500 feet distance from goats and important goat 

habitat and avoiding flight paths over important habitat when possible. Recent research (Festa-Bianchet 

and Cote’ 2008) recommends aircraft maintain greater distance than Forest Plan standards and guidelines; 

thus, maintaining a 6,600-foot clearance from goats is recommended where terrain and weather permit. 

Black bears are present throughout area. Avoid disrupting bears feeding in grassy flats and along these 

streams during salmon runs in the summer/fall. Implement Forest Plan Standards and Guidelines and bear 

viewing etiquette to avoid human/bear conflicts. Avoid buzzing or approaching bears with aircraft or 

boats. 

Traitors Cove is a significant waterfowl and swan wintering area. One of the few reports of swan nesting 

occurs in Traitors Cove. Prevent disturbance during migration and wintering periods (October 1 through 

April 30) and to nesting swans present after April. 

Concentrations of bald eagle nests occur in Traitors Cove, Neets Bay, and Gedney Pass in remaining 

coastal old growth. Approximately 50 nests have been documented. Avoid activities within 330 feet of 

bald eagle nests during the breeding season March1 – August 31. 

A known goshawk nest occurs immediately adjacent to this use area. Report any sightings or attacks by 

goshawks to KMRD biologist within 48 hours for follow-up. 

Marine mammals including humpback whales, Steller sea lions and harbor seals are present. A sea lion 

haulout occurs in the area and seals often haul out on the numerous rocky islands. Implement ESA and 

NMFS regulations and maintain at least 100-yard distance from any marine mammal. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 83

____________________________________________________________ Draft Environmental Impact Statement
19 NORTH REVILLA Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles 09/22/2010

The USDA Forest Service makes 

no warranty, expressed or implied, 

regarding the data displayed on 

this map, and reserves the right

to correct, update, modify, or 

replace thisinformation without 

notification.

Semi-Primitive Non-Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 84

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 19 NORTH REVILLA 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

538 < 1 2 3,253 17 35 468 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 37 SDs 

B 30 161 30 976 30 140 

C 50 269 50 1,627 50 234 

D 30 161 30 976 30 140 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the northern, non-wilderness portion of Revillagigedo Island, 

including Hassler Island and Black Island. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): Modified Landscape, Old Growth Reserve, Remote Recreation, SemiRemote Recreation, Recreation River, Wild River, Scenic River (Orchard Lake System), Scenic 

Viewshed, and Timber Production

Recreation Opportunity Spectrum (ROS) Class: Primitive, Semi-Primitive Motorized and Roaded 

Modified 

Communities: None.

Forest Service Recreation Facilities

Cabins (2): Blind Pass and Plenty Cutthroat

Buoys (2) Shrimp Bay and Blind Pass

Trails (2): Orchard Lake and Long Lake Trails

Shelter (1): Long Lake

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 85

____________________________________________________________ Draft Environmental Impact Statement
Land Status

National Forest System Lands: No encumbrances 

Non-National Forest System Lands: None 

Current Recreational Use and Setting

Four outfitter and guide locations and 11 dispersed recreation sites are recorded in this area. Most 

dispersed sites have minimal impacts; one site in Convenient Cove has moderate to high impacts. 

Area Attractions: Forest Service trails, cabins, shelters and buoys; Shrimp and Klu Bays; Orchard and 

Long Lakes; Blind Pass and Gedney Pass

Commercial Use: Small amount of guided fishing, camping (sea kayaking tours), hiking, and cabin use 

at Plenty Cutthroat (Orchard Lake), Anchor Pass, and Blind Pass. 

Other Recreational Use: Fishing, boating, camping, hiking, and cabin use. The Blind Pass cabin 

receives a low to moderate amount of use (reserved an average of 26 nights per year between 2005 and 

2010) and Plenty Cutthroat cabin receives a low amount of use (average of 18 nights per year).

Resource Considerations* 

Botany: There are three sensitive and rare plant populations documented in this recreational use area. 

The permit administrator will work with the District Botanist before issuing any new outfitter or guide 

permits or when the permit holder asks for an increase in the number of authorized days in this area. A 

map of the location of the populations can be provided upon request. Please refer to the unit card 

introduction. 

 

Invasive Plant Species: There are four invasive plant populations documented in this recreational use 

area. The permit administrator will work with the District Botanist before issuing any outfitter and guide 

permits in this area. A map of the location of the populations can be provided upon request. Please refer 

to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 12 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter and guide permits in 

this area.

Recreation: There is no social encounter monitoring data for this area. 

• Blind Pass and Plenty Cutthroat (Orchard Lake) public recreation cabins may be authorized for 

guided use. Blind Pass cabin will be authorized for a maximum 10 days per month (total between 

guides) and no guided use will be authorized on weekends or holidays. Plenty Cutthroat will be 

authorized for a maximum of 20 days per month (total between guides). 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: N/A 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 86

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Wildlife: Active goshawk nest territory is present on Hassler Island. Maintain at least 600 foot no 

disturbance zone from nests and move further away if goshawks continue to screech or show agitation. 

Check with Wildlife Biologist before permitting activities in this area. 

Osprey have been observed at Orchard Lake. Report any additional sightings or nest activity to KMRD 

biologist for follow-up in accordance with WILD4.C. (FP page 4-100). 

Shrimp Bay, Klu Bay, and Orchard Lake are used by wintering trumpeter swans and wintering waterfowl. 

Limit disturbance October 1 through April 30. 

Humpback whales, Steller sea lions, and harbor seals are present in the marine waters surrounding use 

area. Comply with ESA, MMPA and whale regulations to minimize impacts from authorized activities 

and maintain at least 100-yard distance from any marine mammal. 

Mountain goats are present on alpine/subalpine ridges near Orchard Creek. They are particularly sensitive 

to disturbance during the winter through early summer kidding season. Do not approach goats (except for 

permitted hunting) and move further away if goats alter behavior. Avoid aircraft disturbance of goats by 

maintaining a minimum of 1,500 feet distance from goats and important goat habitat and avoiding flight 

paths over important habitat when possible. Recent research (Festa-Bianchet and Cote’ 2008) 

recommends aircraft maintain greater distance than Forest Plan standards and guidelines; thus, 

maintaining a 6,600-foot clearance from goats is recommended where terrain and weather permit. 

Black bears present around Klu Bay during salmon runs and both Klu and Orchard during emergence 

from dens in the spring. Prevent disturbance of foraging bears and implement standards and guidelines for 

preventing human/bear conflicts. Avoid buzzing or approaching bears with aircraft or boats. 

There are 18 documented bald eagle nests. Avoid activities within 330 feet of bald eagle nests during the 

breeding season March1 – August 31. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 87

____________________________________________________________ Draft Environmental Impact Statement
Hyder

HYDER SPNW

Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

20 HYDER SPNW

09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data displayed 

on this map, and reserves the right to correct, 

update, modify, or replace thisinformation without 

notification.

Semi-Primitive Non-Wilderness

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 88

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 20 HYDER SPNW 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

269 0 0 1,626 1 4 234 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 4 SDs 

B 30 81 30 488 30 70 

C 50 135 50 813 50 117 

D 30 81 30 488 30 70 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: General Hyder area, not including Fish Creek Wildlife Observation Site and roadaccessible areas in the vicinity of Hyder, Alaska. This undeveloped area encompasses the coastal area 

from the outlet of the Salmon River extending south along the Portland Canal for approximately ten miles 

to the National Monument/Wilderness boundary. This area is characterized by lofty peaks, large glaciers 

and icefields, alpine lakes and large river systems. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): Semi-Remote Recreation, Remote Recreation and Scenic Viewshed 

Recreation Opportunity Spectrum (ROS) Classes: Roaded Modified, Semi-Primitive Motorized, 

Semi-Primitive Non-Motorized and Primitive. 

Communities: None. 

Forest Service Recreation Facilities 

None. 

Land Status

National Forest System Lands: One encumbrance: A withdrawal was issued for a potential power 

project - FERC Energy project Soule River P-13528 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 89

____________________________________________________________ Draft Environmental Impact Statement
Non-National Forest System Lands: State of Alaska – parcels in the area around Hyder, AK. 

Private Ownership – multiple parcels adjacent to the Salmon River corridor and Texas Creek 

Current Recreational Use and Setting

One outfitter and guide location and three dispersed recreation sites have been reported in this area. 

Area Attractions: Chickamin Cabin; Texas Lake and the West Fork Texas Creek; No Name Lake; Soule 

River; and the Portland Canal 

Commercial Use: Small amount of guided brown bear hunting (with camping) in the Soule River 

drainage. 

Other Recreational Use: Snowmachining, wildlife viewing, hiking, fishing, sightseeing, dispersed 

camping, hunting and recreational boating. Residents of Hyder, Alaska use the Portland Canal area 

throughout the summer months and Texas Creek drainage during the winter months. 

Resource Considerations* 

Botany (and Invasive Plant Species): Please refer to the unit card introduction. 

 

Fisheries/Hydrology: There are no known concerns with current level of outfitter or guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 7 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter or guide permits in 

this area.

Recreation: There is no social condition monitoring information available for this area. 

Subsistence, Traditional Use, and Personal Use: Area important to residents of Hyder. 

Wilderness: N/A 

Wildlife: Brown bears occur throughout the area and forage along fish streams including Salmon River, 

Fish Creek and Texas Creeks and along the intertidal zone when salmon are present. The bear population 

is critical to the Hyder economy. Implement Forest Plan Standards and Guideline to prevent human/bear 

conflicts. 

Mountain goats are present in alpine areas. They are particularly sensitive to disturbance during the winter 

through early summer kidding season. Avoid disturbance of goats from authorized flight seeing activities 

by maintaining a minimum of 1,500 feet distance from goats and important goat habitat and avoiding 

flight paths over important habitat when possible. Recent research (Festa-Bianchet and Cote’ 2008) 

recommends aircraft maintain greater distance than Forest Plan standards and guidelines; thus, 

maintaining a 6,600-foot clearance from goats is recommended where terrain and weather permit. 

Avoid disturbance within 330 feet of bald eagle nests during the nesting season March 1 – August 31. 

Portland Canal and coastal areas at the mouth of the Salmon River receive significant waterfowl use 

during migration seasons. Prevent human disturbance of wintering birds from October 1- April 30. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 90

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
The Hyder vicinity also contains many migratory birds not found on the rest of KMRD. Follow guidelines 

in the Migratory Treat Act and Migratory Bird Executive Order 13186. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 91

____________________________________________________________ Draft Environmental Impact Statement
Metlakatla

21 PERCY HOTSPUR MARY

ISLANDS

Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 2 4

Miles 09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data displayed 

on this map, and reserves the right to correct, 

update, modify, or replace thisinformation without 

notification.

Semi-Primitive Non-Wilderness

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 92

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 21 PERCY HOTSPUR MARY ISLANDS 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

269 0 0 1,626 0 0 234 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 0 SDs 

B 30 81 30 488 30 70 

C 50 135 50 813 50 117 

D 0 0 0 0 0 0 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area includes Percy Islands, and Hotspur and Mary Islands, as well as numerous other smaller 

islands in the vicinity of these islands. These islands are remote and almost entirely undeveloped. 

Recreation Opportunity Zone: Semi-Primitive Non-Wilderness (SPNW) 

Land Use Designations (LUDs): Special Interest Area (part of the Duke Island Zoological Area) and SemiRemote Recreation (Twin Islands). 

 

Recreation Opportunity Spectrum (ROS) Classes: Primitive and Semi-Primitive Motorized 

Communities: None. 

Forest Service Recreation Facilities

None. 

Land Status

National Forest System Lands: One encumbrance. A withdrawal was issued for Mary Island Lighthouse Reserve, 

US Coast Guard. 

Non-National Forest System Lands: None

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 93

____________________________________________________________ Draft Environmental Impact Statement
Current Recreational Use and Setting

No outfitter or guide locations or dispersed recreation sites are reported for this area. 

Area Attractions: There are popular anchorages in both the Percy Islands and Mary Island. Camping and 

picnicking occurs on parts of Hotspur and Mary island. 

Commercial Use: No commercial use documented in this use area. 

Other Recreational Use: Boating, hunting, beachcombing and fishing.

Resource Considerations* 

Botany (and Invasive Plant Species): Please refer to the unit card introduction. 

 

Fisheries/Hydrology: There are no known concerns with current level of outfitter or guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 8 cultural resource sites located in this Recreational Use Area that are either listed, determined 

eligible or potentially eligible for the National Register of Historic Places. This entire Recreational Use Area has 

been declared sacred by federally recognized tribes as per Executive Order 13007. This area is also in the process 

of being evaluated as a Traditional Cultural Property (TCP). The permit administrator will work with District 

Archaeologist before issuing any new outfitter or guide permits in this area. 

Recreation: Concern that guided visitors will have a negative social impact on unguided visitors participating in 

subsistence activities. There is no social encounter monitoring data for this area. 

Subsistence, Traditional Use, and Personal Use: Very high subsistence use area for residents of Metlakatla and 

Saxman. 

Wilderness: N/A 

Wildlife: The Duke Island area was designated as a Special Interest Zoological Area because it contains numerous 

unique wildlife resources including large numbers of waterfowl, seabirds, and migratory birds, nesting sandhill 

cranes and trumpeter swans, fragile habitat, and marine mammal haul-outs. The permit administrator will work 

with the District Wildlife Biologist to avoid or mitigate impacts to wildlife resources before issuing outfitter and 

guide permits in this area. 

Black oystercatchers (R10 Sensitive Species) are present and Forest Plan WILD4.II (FP pg. 4-98), and FSM 2670 

direction for TES species applies. Oystercatchers nest along the high tide margin of the inter-tidal zone and nesting 

habitat includes mixed sand, and gravel beaches, cobble and gravel beaches, exposed rocky headlands, rocky islets, 

and tidewater glacial moraines in close proximity to mussel beds. 

Endangered Species Act of 1973 as amended (16 USC 1531 et seq.), Marine Mammal Protection Act of 1972 (16 

USC 1361 et seq.), Regulations Governing the Approach to Humpback Whales in Alaska (50 CFR Part 224.103), 

and Migratory Bird Treaty Act of 1918 as amended (16 USC 703 et seq.) specifically apply to this area. Follow 

NMFS regulations and maintain at least 100 yards from all marine mammals.

The area is used extensively by wintering waterfowl, including trumpeter swans. Waterfowl and Shorebird Habitat 

FP S&Gs WILD1.XII.A.3, A.6, & B. and WILD4.B.2 apply. Prevent human disturbance October 1- April 30 and 

near any nesting birds. 

*District-wide resource considerations are included in the introduction to these cards. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 94

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Hyder

HYDER NA

Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 1 2

Miles

22 HYDER NA

09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data displayed 

on this map, and reserves the right to correct, 

update, modify, or replace thisinformation without 

notification.

Natural Accessible

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 95

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 22 HYDER NA 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

179 0 0 1,084 7 27 156 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 27 SDs 

B 50 90 50 542 50 78 

C 50 90 50 542 50 78 

D 50 90 50 542 50 78 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the road and trail-accessible area surrounding Hyder, Alaska (not 

including Fish Creek Wildlife Observation Site). 

Recreation Opportunity Zone: Natural Accessible (NA) 

Land Use Designations (LUDs): Semi-Remote Recreation and Scenic Viewshed 

Recreation Opportunity Spectrum (ROS) Classes: Rural, Roaded Natural, Semi-Primitive Motorized 

and Semi-Primitive Non-Motorized 

Communities: Hyder, AK 

Forest Service Recreation Facilities 

Trail (1): Titan Trail 

Land Status

National Forest System Lands: One encumbrance: A withdrawal was issued for a State Selection 

parcel at the junction of Fish Creek and Salmon River, The selection application has been filed. 

Non-National Forest System Lands: State of Alaska – parcels near the community of Hyder, AK 

Private Ownership –Community of Hyder and several parcels along the Salmon River and Fish Creek 

corridors 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 96

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Current Recreational Use and Setting

Three outfitter and guide locations have been reported for this area; there are no known dispersed 

recreation sites. 

Area Attractions: Salmon River Road and Titan Trail 

Commercial Use: Small amount of guided hiking and wildlife viewing on the Titan Trail and guided 

fishing, black bear hunting, and brown bear hunting on the Salmon River. 

Other Recreational Use: Snowmachining, wildlife viewing, hiking, fishing, sightseeing, dispersed 

camping and hunting. Driving tour developed with British Columbia Parks is also popular with unguided 

visitors and includes locations along the Salmon River Rd. in the United States and British Columbia. 

Resource Considerations* 

Botany: There is one rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or 

when the permit holder asks for an increase in the number of authorized days in this area. A map of the 

location of the population can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 33 invasive plant populations (9 TNF High Priority Invasives) 

documented in this recreational use area. The permit administrator will work with the District Botanist 

before issuing any outfitter and guide permits in this area. A map of the location of the populations can 

be provided upon request. Please refer to the unit card introduction 

 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or 

locations. Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 10 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit 

administrator will work with District Archaeologist before issuing any new outfitter and guide permits in 

this area.

Recreation: There is no social encounter monitoring data for this area. 

 Inventory and monitoring will be conducted to ensure that social conditions for the natural 

accessible recreation opportunity zone are maintained and trail conditions are maintained. 

• Guided use allocations for this Use Area do not include guided activities at the Fish Creek 

Wildlife Viewing Site. Use at this highly-developed, road-accessible site will be monitored to 

ensure that no more than half of the platform capacity (200 People at One Time) is utilized by 

guided groups. 

• Concern that improvements made to the Titan Trail in 2010 will result in increased guided and 

unguided use in this area as a secondary wildlife viewing option. Outfitter/guides authorized to 

use the Titan Trail will ensure that clients are accompanied by a guide and stay on the trail at all 

times. 

• Outfitters and guides will include bear safety education elements in their safety plans. These 

elements will include basic bear biology and behavior, how to avoid confrontations with bears in 

the field, viewing distances, and what to do in case of a bear encounter. 

• With the exception of the Fish Creek Wildlife Observation Site, guided tours in this use area will 

only be authorized between the hours of 0800 and 1800 to allow bears to feed and move about 

freely during other times of the day. Portions of each day will remain visitor free to allow nonhabituated bears a period of use without the stress of having people present. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 97

____________________________________________________________ Draft Environmental Impact Statement
Subsistence, Traditional Use, and Personal Use: Area important to residents of Hyder. 

Wilderness: N/A 

Wildlife: Brown bears are prevalent along Salmon River, Fish Creek, and Marx Creek when salmon are 

present and bear viewing is critical to the Hyder economy. Brush can limit visibility; stay on trail while 

hiking and be aware of surroundings. Implement Forest Plan Standards and Guidelines to prevent 

human/bear conflicts. 

Mountain goats are present in subalpine/alpine habitat above Hyder and are particularly sensitive to 

disturbance during the winter through early summer kidding season. Avoid disturbance of goats from 

authorized flight seeing activities by maintaining a minimum of 1,500 feet distance from goats and 

important goat habitat and avoiding flight paths over important habitat when possible. Recent research 

(Festa-Bianchet and Cote’ 2008) recommends aircraft maintain greater distance than Forest Plan 

standards and guidelines; thus, maintaining a 6,600-foot clearance from goats is recommended where 

terrain and weather permit. 

Portland Canal and coastal areas at the mouth of the Salmon River, including grass flats near the 

causeway, receive significant waterfowl use during migration. Prevent human disturbance October 1- 

April 30. 

Hyder area contains many migratory birds not found on the rest of KMRD. Follow guidelines in the 

Migratory Treat Act and Migratory Bird Executive Order 13186. 

*District-wide resource considerations are included in the introduction to these cards.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 98

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
BETTON ISLAND

23 BETTON ISLAND Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 1 2

Miles

Natural Accessible 

Recreation Opportunity Zone

09/22/2010

The USDA Forest Service makes no 

warranty, expressed or implied, regarding 

the data displayed on this map, and 

reserves the right to correct, update, 

modify, or replace this information without 

notification.

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 99

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 23 BETTON ISLAND 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

1,932 181 278 11,676 6,921 8,153 1,680 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 14 SDs 

B 40 773 75 8,757 40 672 

C 50 966 50 5,838 50 1,560 

D 30 580 75 8,757 30 504 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area includes the relatively undeveloped Betton Island, Grant Island, Back Island and Cedar 

Island, as well as several other smaller islands in the vicinity. 

Recreation Opportunity Zone: Natural Accessible (NA) 

Land Use Designations (LUDs): Semi-Remote Recreation 

Recreation Opportunity Spectrum (ROS) Classes: Semi-Primitive Motorized and Roaded Modified 

Communities: None. 

Forest Service Recreation Facilities 

Trails (1): Betton Island Trail 

Land Status

National Forest System Lands: No encumbrances 

Non-National Forest System Lands: State of Alaska –parcels on Grant, Joe, and Betton Islands. Cape Fox 

Corporation – Clover Island. Private Ownership – parcels on Pup Island and Grant Island 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 100

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Current Recreational Use and Setting

Two outfitter and guide locations and 25 dispersed recreation sites have been reported in this area. Ten of the 25 

dispersed sites have moderate to high impacts from recreational use. 

Area Attractions: Scenic islands, coves and beaches 

Guided Use: Approximately 7,000 visitors, primarily in the summer season, for guided beach/sea kayaking and 

hiking tours. Use is concentrated at two locations on the western side of Betton Island. Average guided group size 

for this area is 18 clients. 

Unguided Use: Camping, kayaking, boating, beachcombing, and saltwater fishing. Numerous moderate to highimpact recreation sites recorded in this area, including sites on Grant, Stack, and Cedar Islands. 

Resource Considerations* 

Botany (and Invasive Plant Species): Please refer to the unit card introduction. 

 

Fisheries/Hydrology: There are no known concerns with current level of outfitter or guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 4 cultural resource sites located in this Recreational Use Area that are either listed, determined 

eligible or potentially eligible for the National Register of Historic Places. The permit administrator will work with 

District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: This area is very popular with guided and unguided visitors during the summer months. There is 

concern that crowding will diminish the recreation experience in the area. Guided use has already displaced 

unguided visitors at two locations on the western side of Betton Island. There is no social encounter monitoring 

data for this area. 

 Guided use will be limited to two locations on the western side of Betton Island where high levels of 

guided use have historically been authorized. No additional locations will be authorized for guided use. 

 This area is popular for kayaking, boating, and camping. No improvements or overnight guided use 

will be authorized. 

 Outfitter and guide groups will operate in a manner that minimizes impacts on other visitors. 

 No outfitter and guide use will be authorized on Tatoosh, Back, Hump, Pup, Grant, Stak, Moser, Cache 

and Cedar Islands. These areas receive a high amount of unguided use. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: N/A 

Wildlife: Use area is part of whale migration route. Humpback whales are often in the waters during spring and 

fall migrations; humpbacks and killer whales also are present in lesser numbers during the summer. Stellar sea lions 

are also frequently present although the nearest large haulout is Grindall Island. Fin whales, killer whales, harbor 

seals, Dall’s porpoise, harbor porpoise, and Pacific white-sided dolphins also occur in the marine waters 

surrounding Betton and can be impacted by outfitter-guide activities. Endangered Species Act (16 USC 1531 et 

seq), Marine Mammal Protection Act (16 USC 1361 et seq), Regulations Governing the Approach to Humpback 

Whales in Alaska (50 CFR Part 224.103), and Bald Eagle Protection Act (16 USC 668-668c and 50 CFR 22.26) 

apply to all activities in this use area. Maintain at least 100-yard distance from any marine mammal. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 101

____________________________________________________________ Draft Environmental Impact Statement
High numbers of bald eagle nests also occur throughout this use area. Over 50 nests have been documented. 

Multiple identified recreation sites appear to be within nest buffer zones. Avoid activities within 330 feet of bald 

eagle nests during the breeding season March1 – August 31. 

*District-wide resource considerations are included in the introduction to these cards. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 102

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Ketchikan

KETCHIKAN CORE NA

24 KETCHIKAN CORE NA Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data displayed 

on this map, and reserves the right to correct, 

update, modify, or replace thisinformation without 

notification.

Natural Accessible

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 103

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 24 KETCHIKAN CORE NA 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

3,588 47 67 21,684 1,249 1,502 3,120 2 3 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 1,572 SDs 

B 40 1,435 40 8,674 40 1,248 

C 50 1,794 50 10,842 50 1,560 

D 25 897 25 5,421 25 780 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area includes road and trail systems accessible by the Ketchikan road system spanning from 

Lunch Creek in the north to George Inlet in the east. Much of this area is under Non-Forest Service ownership and 

is highly developed. 

Recreation Opportunity Zone: Natural Accessible (NA) 

Land Use Designations (LUDs): Modified Landscape, Municipal Watershed, Old Growth Habitat, Special Interest 

Area (Ward Lake Recreation Area), Semi-Remote Recreation, and Timber Production 

Recreation Opportunity Spectrum (ROS) Classes: Rural, Roaded Modified, Roaded Natural, Semi-Primitive 

Motorized and Semi-Primitive Non-Motorized 

Communities: Ketchikan, Ward Cove and Saxman 

Forest Service Recreation Facilities

Trails (13): Lunch Creek, Ward Creek, Silvis Lakes, Deer Mountain, Dude Mountain, Perseverance Lake, Ward 

Lake, Connell Lake, Salvage, Carlanna Lake, Minerva Mountain, Frog Pond, and Pipeline Trails. 

Shelters (2): Deer Mountain and Blue Lake 

Campgrounds (2): Signal Creek and Last Chance 

Day Use Areas (3): Ward Lake, Grassy Point and Silvis Lake 

Group Use Site (1): 3 C’s Group Use Site – day or overnight use 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 104

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Land Status

National Forest System Lands: Ten encumbrances: 

1) AKAA 006986B & 2) AKAA006986C Native Village Selections around First and Second Waterfall and Lunch 

Creek areas; 

3) AKAA 053091 State Selection for Talbot Lake area; 

4) AKAA 061577 Withdrawal for Ward Lake Recreation Area; 

5) AKAA 003393 Withdrawal for Last Chance Campground, part of Ward Lake Recreation Area; 

6) AA91996 Withdrawal around Connell Lake for proposed hydropower project – FERC permit cancelled –

withdrawal still in place; 

7) AKAA 056925 A withdrawal around Upper and Lower Ketchikan Lakes for active FERC project P-420; 

8) AKAA 056924 Withdrawal by special act Ketchikan Watershed Reserve PLO 76-240 dated 7/27/39 – 

indefinite expiration; 

9) AKAA 057746 A withdrawal around Upper/Lower Silvis Lakes and Beaver Falls for active FERC project P1922; 

10) AKAA 071619 State Selection for area surrounding Upper and Lower Silvis Lake – application filed. 

Non-National Forest System Lands: Connell Lake Dam and penstock – Ownership changes between Ketchikan 

Gateway Borough (KGB) and private party. It is currently owned by KGB. FS has easement with BLM for trail to 

Carlanna Lake and extending to NFS lands. 

In the following areas, NFS lands are bordered by: 1) Clover Passage and Lunch Creek areas – State of Alaska and 

Ketchikan Gateway Borough; 2) Second Waterfall Creek area – Cape Fox Village Corporation; 3) Tongass 

Narrows north of Ward Cove – State of Alaska and private parcels; 4) Ward Creek north of Talbot Lake, Harriet 

Hunt and White River - Cape Fox Village Corporation and State of Alaska; 5) Tongass Narrows from Ward Cove 

to Mt Point – State of Alaska entities and BLM; 6) Mt. Point up George Inlet - State of Alaska, Cape Fox 

Corporation and private parcels.

Current Recreational Use and Setting

Eleven outfitter and guide sites and 3 dispersed recreation sites have been reported in this area. 

Area Attractions: Forest Service road systems and trails; public use shelters, Ward Lake Recreation Area. 

Guided Use: Average of 1,300 visitors annually for guided jeep tours (Brown Mountain Rd.), hiking (Connell 

Lake, Ward Creek, and Lunch Creek Trails), mountain goat hunting with camping, and fishing (Ward Creek). 

Commercial use of this area was higher prior to 2005. Use takes place in the spring and summer seasons. No fall 

guided use reported. 

Other Recreational Use: This use area is popular year-round for local residents. Unguided activities include 

hiking, pleasure driving, picnicking, camping, fishing, cross-country skiing, snowshoeing, off-highway vehicle use 

and snowmachining. Unguided visitors use road-based trails to access alpine areas. 

Resource Considerations* 

Botany: There are 19 sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 2,612 invasive plant populations (562 TNF High Priority Invasives) documented 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 105

____________________________________________________________ Draft Environmental Impact Statement
in this recreational use area. The permit administrator will work with the District Botanist before issuing any 

outfitter and guide permits in this area. A map of the location of the populations can be provided upon request. 

Please refer to the unit card introduction 

 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. The Ward Creek 

drainage receives the highest guided and unguided fishing pressure on the district. Guided fishing to accommodate 

people with disabilities is recommended. 

Heritage: There are 12 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter and guide permits in this area. 

Recreation: Residents of Ketchikan have expressed concern that guided use in this area will increase crowding and 

diminish recreation experiences, particularly on popular trails and fishing streams (e.g. Ward Creek). An 

Environmental Assessment was completed in 2005 to address commercial uses on Ketchikan-area trails. The 

decision was to authorize a limited amount of guided use on three of the area’s trails: Connell Lake Trail, Lunch 

Creek Trail, and Ward Creek Trail. Local users expressed concern that the presence of large guided groups will 

diminish their recreation experience in this use area. They also expressed concern that large vehicles used for 

guided groups would cause congestion in trailhead parking lots and that guided fishing on Ward Creek would 

displace unguided visitors because of a limited number of fishing holes and conflicts reported between guided and 

unguided groups in the past. 

 There is no social encounter monitoring data for this area. Inventory and monitoring will determine is 

social conditions within this area are within standards for the natural accessible zone (e.g. no more that 8 

encounters per day 80% of the time). 

• Guided use at the Ward Lake Day Use Area and Forest Service developed campgrounds will generally not 

be permitted. Some guided use may be authorized at Ward Lake to accommodate people with disabilities. 

Applications for this type of use will be considered on a case-by-case basis. 

• The Commercial Uses on Ketchikan Trails Environmental Assessment was completed in 2005 and 

involved considerable public input. As a result of this analysis, guided hiking was authorized on the 

following Forest Service Trails in this Use Area: 

1. Connell Lake Trail – Up to 25 guided visitors per day 

2. Lunch Creek Trail – Up to 25 guided visitors per day. 

3. Ward Creek Trail – Up to 100 guided visitors per day. 

 Comments received in recent public meetings indicate that the public is satisfied with implementation of 

this decision and would like to maintain the status quo for this area. 

• Guided camping and floatplane landings will not be authorized in the Use Area. 

• No guided hiking will be authorized on the Deer Mountain, Dude Mountain, Frog Pond, Minerva 

Mountain, Perseverance, Pipeline, Salvage Road, Silvis Lakes, and Ward Lake Trails. 

• Guided group size in this Use Area will not exceed 12 (not including the guide), unless specifically 

authorized in the permit. 

• Guided use in this Area will only be authorized between 8:00 am and 6:00 PM. 

• Monitoring will occur on Ward Creek to ensure that recreational angling experiences are not diminished by 

crowding. Guided fishing group size will not exceed four (not including the guide) and encounter rates will 

not exceed eight encounters per day 80% of the time. 

 Guided road-based nature tours may continue to be authorized on Brown Mountain Rd. Drivers will refrain 

from speeding so as to minimize safety concerns and impacts on other visitors. Vehicles will not block the 

roadway for other traffic and will remain on established roadway or in established pullouts at all times. 

Subsistence, Traditional Use, and Personal Use: Area receives high subsistence use area due to easy access and 

proximity to Saxman and Metlakatla. 

Wilderness: N/A 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 106

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Wildlife: Bald eagles nests are present near the beach along much of the Ketchikan road system. Approximately 

40 nests have been documented. Avoid activities within 330 feet of bald eagle nests during the breeding season 

March1 – August 31. Some eagles are more tolerant of human activity whereas others are more easily disturbed. 

Comply with Bald Eagle regulations and move further away if eagles show signs of disturbance (screeching, flights 

off nest, etc). 

Mountain goats occur on most of the alpine/subalpine ridges within and adjacent to this area and are known to 

move to lower elevations within this area during fall/winter as snow loads increase. Avoid disturbing goats winter 

through early summer kidding season. Stay on designated trails and avoid approaching goats at all times or getting 

within close enough range during any activity that causes goats to exhibit fright/flight behavior. 

Osprey occur at Perseverance Lake. Report any nesting activity to KMRD biologist within 48 hours for follow-up. 

Activities may continue, but move at least 330 feet away from the nest or further if osprey exhibit signs of 

disturbance. 

Black bears are present throughout area. Implement Forest Plan Standards and Guidelines and bear viewing 

etiquette to avoid human/bear conflicts. 

Practice good viewing etiquette for any wildlife species encountered in this high use area. Avoid disturbing 

wintering waterfowl and swans. 

*District-wide resource considerations are included in the introduction to these cards. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 107

____________________________________________________________ Draft Environmental Impact Statement
25 SOUTH REVILLA NA Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data 

displayed on this map, and reserves the right

to correct, update, modify, or replace this

information without notification.

Natural Accessible

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 108

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 25 SOUTH REVILLA NA 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

359 0 0 2,168 <1 2 312 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 2 SDs 

B 40 144 75 1,626 40 125 

C 50 180 50 1,084 50 156 

D 25 90 50 1,084 25 78 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the remote Forest Service road systems in Thorne Arm, Carroll Inlet, and 

George Inlet. This area has been modified by extensive timber harvest and includes numerous developed shore 

landings and docks. 

Recreation Opportunity Zone: Natural Accessible (NA) 

Land Use Designations (LUDs): LUD II, Modified Landscape, Old Growth Habitat, Semi-Remote Recreation, 

Timber Production and Wild River (Fish Creek) 

Recreation Opportunity Spectrum (ROS) Classes: Roaded Modified, Roaded Natural, Semi-Primitive 

Motorized and Semi-Primitive Non-Motorized 

Communities: None 

Forest Service Recreation Facilities

Road Systems (4): Upper Carroll, Shelter Cove (Carroll Inlet), Shoal Cove (Carroll Inlet) and Elf Point (Thorne 

Arm)

Docks (2): Shoal Cove and Shelter Cove 

OHV Trails (4): Elf Point, Shoal Cove (2), and North Saddle Lake

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 109

____________________________________________________________ Draft Environmental Impact Statement
Land Status

National Forest System Lands: No encumbrances

Non-National Forest System Lands: State of Alaska - area surrounding Swan Lake and outlet. At the 

northern end of George Inlet, NFS lands are adjacent to State of Alaska and Cape Fox Corporation lands. 

Private ownership – Marble Creek. 

Current Recreational Use and Setting

One outfitter and guide use locations and three dispersed recreation sites reported. These sites have not been 

inventoried, so their condition is unknown. 

Area Attractions: Forest Service docks and road systems 

Guided Use: Small amount of guided black bear and mountain goat hunting (day use) and beach use. 

Unguided Use: Area is easily accessible and popular with unguided visitors throughout the spring, summer, and 

fall months for boating, hunting, fishing, shrimping, off-highway vehicle (OHV) use and crabbing. 

Resource Considerations* 

Botany: There are eleven sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 43 invasive plant populations (32 TNF High Priority Invasives) documented in 

this recreational use area. The permit administrator will work with the District Botanist before issuing any outfitter 

and guide permits in this area. A map of the location of the populations can be provided upon request. Please refer 

to the unit card introduction 

 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

 

Heritage: There are 10 cultural resource sites located in this Recreational Use Area that are either listed, 

determined eligible or potentially eligible for the National Register of Historic Places. The permit administrator will 

work with District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: Concern expressed by Ketchikan-area residents that guided use in this Area will diminish recreation 

and subsistence use opportunities for unguided visitors, particularly during the fall hunting season. Multiple-use 

remote road systems may present a safety concern if use of the area by different user types (e.g. pedestrians and 

OHV users) increases. No social encounter monitoring data exists for this area. 

• Outfitters and guides will conduct all operations in a manner that minimizes impacts on unguided visitors. 

• Outfitters and guides may be authorized to use Off-Highway Vehicles along the Forest Service road system 

and established OHV trails in this area. OHV drivers will refrain from speeding so as to minimize safety 

concerns and impacts on other visitors and stay on the established road and pullouts at all times. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 110

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Wilderness: N/A 

Wildlife: Area/road systems are heavily used by local deer and bear hunters due to accessibility. 

Upper Carroll is significant swan and waterfowl wintering area. Limit disturbance October 1 through April 30 from 

Upper Carroll road system as it is immediately adjacent to the estuary. Upper Thorne Arm is also important 

wintering area, but road is further from the estuary. 

Sea otters were reported in Carroll Inlet. Humpback whales and Steller sea lions also occur along with killer 

whales and harbor seals. Follow ESA and MMRP and whale regulations to minimize disturbance maintain at least 

100-yard distance from any marine mammal. 

Mountain goats are present in subalpine/alpine habitat surrounding the area and are particularly sensitive to 

disturbance during the winter through early summer kidding season. Avoid disturbance of goats from authorized 

flight seeing activities by maintaining a minimum of 1,500 feet distance from goats and important goat habitat and 

avoiding flight paths over important habitat when possible. Recent research (Festa-Bianchet and Cote’ 2008) 

recommends aircraft maintain greater distance than Forest Plan standards and guidelines; thus, maintaining a 6,600-

foot clearance from goats is recommended where terrain and weather permit. 

A goshawk nest occurs immediately adjacent to the area. Maintain 600 foot no disturbance zone or greater if birds 

exhibit signs of agitation. Report any sightings or new nests to District Biologist within 48 hours for follow-up. 

At least 10 bald eagle nests have been documented. Avoid activities within 330 feet of bald eagle nests during the 

breeding season March1 – August 31. 

*District-wide resource considerations are included in the introduction to these cards. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 111

____________________________________________________________ Draft Environmental Impact Statement
CENTRAL REVILLA NA

CENTRAL REVILLA NA

CENTRAL REVILLA NA

26 CENTRAL REVILLA NA Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 21

Miles

09/22/2010

The USDA Forest Service makes no warranty, expressed or 

implied, regarding the data displayed on this map, and 

reserves the right to correct, update, modify, or replace this 

information without notification.

Natural Accessible 

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 112

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 26 CENTRAL REVILLA NA 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

359 0 0 2,168 0 0 312 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 0 SDs 

B 40 144 40 867 40 125 

C 50 180 50 1,084 50 156 

D 15 54 30 650 15 47 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area includes portions of Revillagigedo Island accessible by remote road systems in Shrimp Bay 

and Neets Bay (Fire Cove and SW Neets Bay). This area has been modified by extensive logging. 

Recreation Opportunity Zone: Natural Accessible (NA) 

Land Use Designations (LUDs): Timber Production, Modified Landscape, and Old Growth Habitat. 

Recreation Opportunity Spectrum (ROS) Classes: Roaded Modified and Semi-Primitive Motorized 

Communities: None. 

Forest Service Recreation Facilities

Road Systems (2): Shrimp Bay and Fire Cove road systems 

Docks (1): Fire Cove 

OHV Trails (2): Southwest Neets and Fire Cove 

Land Status

National Forest System Lands: No encumbrances 

Non-National Forest System Lands: State of Alaska – area surrounding Virgin Bay 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 113

____________________________________________________________ Draft Environmental Impact Statement
Current Recreational Use and Setting

There are no outfitter or guide use locations and five dispersed recreation sites reported in this area. This area does 

not have a completed campsite inventory, so the conditions of these sites in unknown. 

Area Attractions: Remote Forest Service road and off-highway vehicle (OHV) trail systems and dock at Fire 

Cove. 

Guided Use: No guided use reported in the past five years. 

Unguided Use: Small amount of unguided use for hunting, fishing, and OHV use. 

Resource Considerations* 

Botany: There are 34 sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 29 invasive plant populations (19 TNF High Priority Invasives) documented in 

this recreational use area. The permit administrator will work with the District Botanist before issuing any outfitter 

and guide permits in this area. A map of the location of the populations can be provided upon request. Please refer 

to the unit card introduction 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 2 cultural resource sites located in this Recreational Use Area that are either listed, determined 

eligible or potentially eligible for the National Register of Historic Places. The permit administrator will work with 

District Archaeologist before issuing any new outfitter and guide permits in this area.

Recreation: Concern expressed by Ketchikan-area residents that guided use in this Area will diminish recreation 

and subsistence use opportunities for unguided visitors, particularly during the fall hunting season. No social 

encounter data exists for this area. 

• Outfitters and guides will conduct operations in a manner that minimizes impacts on unguided visitors. 

• Outfitters and guides may be authorized to use Off-Highway Vehicles along the Forest Service road system 

and established OHV trails in this area. OHV drivers will refrain from speeding so as to minimize safety 

concerns and impacts on other visitors and stay on the established road and pullouts at all times. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: N/A 

Wildlife: Active goshawk nest territories are present off both Shrimp and Fire Cove road systems. No current 

outfitter-guide use identified near known nests. Check with Wildlife Biologist before permitting activities in this 

area. 

Traitors Cove is significant wintering area for trumpeter swans and waterfowl; Shrimp Bay also used. Limit 

disturbance October 1 through April 30. Documented nesting swans at Traitors estuary; nesting is very limited in 

southeast Alaska. Prevent any disturbance to swans remaining at Traitors Cove after April 30. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 114

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Area is heavily used by Ketchikan deer and bear hunters; wolves are present and opportunistically hunted/trapped. 

Hunting with ATV use of roads occurs beginning August 1; they are also encountered prior to that date on 

reconnaissance trips. 

Humpback whales, Steller sea lions, and harbor seals are present in the marine waters surrounding use area. 

Endangered Species Act (16 USC 1531 et seq), Marine Mammal Protection Act (16 USC 1361 et seq), Regulations 

Governing the Approach to Humpback Whales in Alaska (50 CFR Part 224.103), and Bald Eagle Protection Act 

(16 USC 668-668c and 50 CFR 22.26) apply to all activities in this use area. Maintain at least 100-yard distance 

from any marine mammal. 

Eleven bald eagle nests have been documented. Avoid activities within 330 feet of bald eagle nests during the 

breeding season March1 – August 31. 

Wolf dens have been documented within or immediately adjacent to this area and wolves are sometimes seen along 

the road systems. Practice good wildlife viewing etiquette and do not chase or otherwise harass wolves or other 

wildlife in the area. 

Avoid disturbing loons nesting on lakes adjacent to Shrimp road system. 

*District-wide resource considerations are included in the introduction to these cards. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 115

____________________________________________________________ Draft Environmental Impact Statement
MARGARET BAY

27 MARGARET BAY Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 0.5 1

Miles

09/22/2010

The USDA Forest Service makes no warranty, 

expressed or implied, regarding the data displayed 

on this map, and reserves the right to correct, 

update, modify, or replace thisinformation without 

notification.

Natural Accessible

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 116

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
USE AREA 27 MARGARET BAY 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

607 0 0 3,670 1,547 2,322 528 0 0 

Proposed Guided Use Allocation by Alternative*

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 2,322 SDs 

B 40 243 75 2,752 40 211 

C 50 304 50 1,835 50 264 

D 25 152 65 2,386 25 132 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses Margaret Creek and Margaret Lake, as well as the saltwater shoreline south 

along the Francis Cove road system. The area has numerous areas of timber harvest and an extensive, although 

remote, Forest Service road system. 

Recreation Opportunity Zone: Natural Accessible (NA) 

Land Use Designations (LUDs): LUD II, Modified Landscape, Old Growth Habitat, Semi-Remote Recreation and 

Timber Production 

Recreation Opportunity Spectrum (ROS) Classes: Roaded Modified and Semi-Primitive Motorized 

Communities: None 

Forest Service Recreation Facilities

Trail (1): Margaret Creek Trail (1/4-mile gravel trail to the wildlife viewing platform) 

Wildlife Viewing Platform (1): Margaret Creek Wildlife Observation Site 

Outhouse (1): Margaret Creek Trailhead

Fishpass (1): Margaret Fishpass 

Road Systems (1): Margaret Bay 

Buoy (1): Margaret Bay 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 117

____________________________________________________________ Draft Environmental Impact Statement
Dock (1): Margaret Bay 

OHV Trails (2) Margaret Bay OHV trails 

Land Status

National Forest System Lands: No encumbrances 

Non-National Forest System Lands: State of Alaska - area surrounding head of Margaret Bay and adjacent 

Traitors Cove area and islands 

Current Recreational Use and Setting

One outfitter and guide site and four dispersed recreation sites have been reported in this area. Campsite inventories 

have not been completed so the condition of the dispersed recreation sites is unknown and additional sites may 

exist. 

Area Attractions: Margaret Bay dock, Margaret Wildlife Viewing Site, Margaret Lake and Creek, and the Forest 

Service road system 

Guided Use: There are approximately 1,500 guided visitors annually (2005-2009) for wildlife viewing between 

July 15th and September 15th. A small amount of guided hunting and fishing also occurs in this use area. 

Unguided use: This area is popular with unguided visitors throughout the spring, summer, and fall seasons. 

Activities include sightseeing, fishing, big game hunting, wildlife viewing, hiking, and off-highway vehicle (OHV) 

use. 

Resource Considerations* 

Botany: There are eight sensitive and rare plant populations documented in this recreational use area. The permit 

administrator will work with the District Botanist before issuing any new outfitter or guide permits or when the 

permit holder asks for an increase in the number of authorized days in this area. A map of the location of the 

populations can be provided upon request. Please refer to the unit card introduction. 

 

Invasive Plant Species: There are 11 invasive plant populations (4 TNF High Priority Invasives) documented in 

this recreational use area. The permit administrator will work with the District Botanist before issuing any outfitter 

and guide permits in this area. A map of the location of the populations can be provided upon request. Please refer 

to the unit card introduction 

 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 2 cultural resource sites located in this Recreation Use Area that are listed, determined either 

eligible or potentially eligible for the National Register of Historic Places. There are no known cultural resource 

sites in the bear viewing area. If any were discovered a determination of effect would be completed, before the 

public would be allowed to go there. 

The permit administrator will work with District Archaeologist before issuing any new outfitter and guide permits 

in this area. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 118

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Recreation: Margaret Creek Wildlife Observation Site is one of two developed wildlife-viewing sites on the 

Ketchikan-Misty Fiords Ranger District and is popular with guided and unguided visitors alike. Crowding at the 

Margaret Bay dock has been a problem in the past. There are also concerns about visitor safety in proximity to the 

bear-viewing platform during the fall hunting season, primarily September 1st through September 15th, and along 

multiple-use road systems. Conflict between different types of visitors, primarily bear hunters and wildlife viewers, 

is frequently reported. No social encounter monitoring data exists for this area. 

 Outfitter/guides will include bear safety education elements in their safety plans. These elements will 

include basic bear biology and behavior, how to avoid confrontations with bears in the field, viewing 

distances, and what to do in case of a bear encounter. 

 All visitors and guides will remain on Forest Service developments including constructed and maintained 

roads, trails, and platforms. 

 Air carriers will avoid buzzing the Margaret drainage, reducing impacts to bears and visitors in the area 

 Guided tours in this use area will only be authorized between the hours of 0800 and 1800 to allow bears to 

feed and move about freely during other times of the day. Portions of each day will remain visitor free to 

allow non-habituated bears a period of use without the stress of having people present. To avoid wildlife 

habituation and related safety issues, all food will be stored in planes or vehicles for the duration of the 

time on National Forest System lands. 

 Group size is limited to 12 persons, not including guides. 

 Drivers will refrain from speeding on roads so as to minimize safety concerns and impacts on pedestrians 

and OHV users. Vehicles will not block the roadway for other traffic and will be parked at the trailhead in a 

manner that maintains a clear view of the trailhead signboard and access to the outhouse and trail. 

 Use of the dock is non-exclusive and is designed for planes to load and unload on the front and for boats to 

dock on the side. Operators must have a guide with their clients and pilots will remain with their planes at 

all times. 

 Guided hunting is prohibited in the Margaret Bay Use Area. The guided recreation emphasis for this Use 

Area is wildlife viewing. Conflicts between different types of visitors, particularly bear viewers and bear 

hunters, are frequently reported. 

Subsistence, Traditional Use, and Personal Use: No specific considerations for this area. 

Wilderness: N/A 

Wildlife: 

Concern over recreational impacts on bears and bear behavior due to limited foraging habitat particularly during 

late summer/fall salmon runs. 

 Restrict guided bear viewing activities to the hours of 0800 to 1800 to allow bears time to feed below the 

fishpass when no people are present. 

 Practice good viewing etiquette to prevent bear/human incidents. 

There are approximately 25 known eagle nests in this area. Disturbance of nests from recreation use, primarily 

flights into the area, is a concern. Avoid activities within 330 feet of nesting eagles March1 – August 31 and avoid 

flying directly over nests during takeoffs and landings if it will not compromise flight safety. 

Traitors Cove, including Margaret Bay, receives significant winter use by trumpeter swans and other waterfowl and 

shorebirds. Margaret Lake is also used during spring and fall migrations; winter use is dependent upon winter 

severity. Prevent human disturbance October 1- April 30 in accordance with Waterfowl and Swan standards and 

guidelines WILD1.XII (FP pg. 4-94) and WILD4.II.B.2 (FP pg. 4-110). 

Goshawk territories have been documented within the area. Maintain at least a 600 foot no disturbance zone around 

nests and move further away if birds continue to show signs of agitation. Check with Wildlife Biologist before 

permitting activities in this area. Report any sightings or attacks by goshawks to KMRD biologist within 48 hours 

for follow-up. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 119

____________________________________________________________ Draft Environmental Impact Statement
Marine mammals are present in West Behm Canal. Implement ESA and NMFS regulations and maintain at least 

100-yard distance from any marine mammal while accessing sites. 

*District-wide resource considerations are included in the introduction to these cards. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 120

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
NAHA BAY

28 NAHA BAY Ketchikan Misty Fiords Ranger District

Tongass National Forest

Legend

Recreation Use Areas

Recreation Use Sites

Outfitter Guide Use Locations

Cities / Towns

Roads

Non-Forest Service Lands

Forest Service Facilities

Shelters

Cabins

Campgrounds

Day Use Areas

Wildlife Viewing

Buoys / Docks

Hiking Trails

OHV Trails

0 0.5 1

Miles 09/22/2010

The USDA Forest Service makes 

no warranty, expressed or implied, 

regarding the data displayed on 

this map, and reserves the right

to correct, update, modify, or 

replace thisinformation without 

notification.

Natural Accessible

Recreation Opportunity Zone

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 121

____________________________________________________________ Draft Environmental Impact Statement
USE AREA 28 NAHA BAY 

Estimated Visitor Capacity and Recent Guided Use in Service Days

Spring Summer Fall 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

Visitor 

Capacity 

Estimate 

Average 

Guided 

Use 

Annually 

(2005-

2009) 

Highest 

Guided 

Use 

Annually 

(2005-

2009) 

359 0 0 2,168 4 14 312 0 0 

Proposed Guided Use Allocation by Alternative* 

 Spring Summer Fall 

Alt. % of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

% of Visitor 

Capacity 

# of Service 

Days 

A* 14 SDs 

B 0 0 0 0 0 0 

C 50 180 50 1,084 50 156 

D 0 0 0 0 0 0 

*Alternative A has no official allocation; highest use numbers for the spring/summer/fall are added together and shown here 

for comparison 

Description: This area encompasses the lower part of the Naha River watershed, including Naha Bay, Roosevelt 

Lagoon, Jordan Lake, and Heckman Lake. The area is characterized by many lakes and a segment of medium-sized 

river, as well as many smaller creeks and streams. 

Recreation Opportunity Zone: Natural Accessible (NA) 

Land Use Designations (LUDs): Semi-Remote Recreation, Wild River (Naha River), Scenic Viewshed, LUDII, 

LUDII Wild River, Wild River, and Modified Landscape 

Recreation Opportunity Spectrum (ROS) Classes: Semi-Primitive Motorized and Rural 

Communities: None. 

Forest Service Recreation Facilities 

Trail (1): Naha National Recreation Trail 

Cabins (3): Southeast Heckman Lake, Heckman Lake, Jordan Lake 

Day Use Area (1): Naha Day Use Area 

Land Status

National Forest System Lands: One encumbrance A withdrawal for the Naha Recreation Area for the area 

surrounding Roosevelt Lagoon, Naha River, Jordan Lake and Heckman Lake. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 122

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Non-National Forest System Lands: State of Alaska – head of Long Arm, Sealaska Corporation –head of Naha 

Bay/Long Arm, Private ownership parcels along Naha River and Heckman Lake 

Current Recreational Use and Setting

Two outfitter and guide locations and two dispersed recreation sites have been reported in this area. A campsite 

inventory has not been completed for the area, so additional sites may exist and site conditions are unknown. 

Area Attractions: Dock at Naha Bay (owned by the State of Alaska); Forest Service trail, cabins, and day use area; 

and Orton Ranch (private camp). 

Guided Use: This area is not currently authorized for commercial use although some illegal guiding has occurred 

in the past. In 1997, an environmental assessment was completed for non-consumptive commercial guiding in the 

Naha Recreation Area and a decision was made not to authorize guided use in the Naha River drainage because of 

the high amount of unguided use already occurring in the area and the desire to maintain the quality of the 

recreation experiences being provided. 

Other Recreational Use: Camping, hiking, picnicking, boating, hunting, kayaking and fishing. Ninety-nine 

groups, consisting of 289 individuals, signed in at the Naha National Recreational Trailhead register in 2010, 

making this trail the most popular remote (e.g. inaccessible by the road system) trail on the KMRD. Heckman Lake 

cabin and SE Heckman Lake cabin receive a moderate to high amount of use. Jordan Lake cabin receives a high 

amount of use (reserved 68 nights in 2009). Up to 50% of the cabin use is by non-residents who kayak or rent skiffs 

to access the area. 

Resource Considerations* 

Botany (and Invasive Plant Species): Please refer to the unit card introduction. 

 

Fisheries/Hydrology: There are no known concerns with current level of outfitter and guide use or locations. 

Following Forest Plan direction will minimize or negate potential impacts to water resources. 

Heritage: There are 2 cultural resource sites located in this Recreational Use Area that are either listed, determined 

eligible or potentially eligible for the National Register of Historic Places. The permit administrator will work with 

District Archaeologist before issuing any new outfitter and guide permits in this area. 

Recreation: This area receives a high amount of unguided use throughout the area and parking at the dock is often 

limited, particularly during the summer months. The area is not only popular with local residents. Independent 

travelers often rent sea kayaking equipment or skiffs from local businesses to visit the area for hiking and staying 

overnight at the public use cabins. A limited amount of information exists for social conditions within this area, but 

currently conditions are below standard for the natural accessible zone. 

 Outfitter and guide use is currently prohibited in the Naha Use Area due to the concern that additional use 

would diminish recreation experiences in the area. 

Subsistence, Traditional Use, and Personal Use: Waters of the Naha River and Roosevelt Lagoon are identified 

as customary and traditional subsistence use areas by federal and state regulations. 

Wilderness: N/A 

Wildlife: Great blue herons have consistently been observed at Roosevelt Lagoon. Apply Forest Plan Standard and 

Guideline WILD1.XIII.A.2. and prevent disturbance within 600 feet of rookeries during the nesting season March 1 

– July 31. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 123

____________________________________________________________ Draft Environmental Impact Statement
Grass flats along Heckman lake and Roosevelt Lagoon inlets and Jordan Lake outlet are used by foraging bears. 

Avoid approaching and disrupting bears during spring when bears are feeding upon grasses (Spring season– June 

30) and mid-summer/fall when bears are feeding upon salmon to survive the winter (mid-July through Fall season). 

Trumpeter swans are common on Jordan and Heckman lakes during the winter and also use Roosevelt Lagoon. 

Avoid disturbance to wintering swans October 1 –April 30 in accordance with WILD4.II.B (FP pg. 4-100). 

*District-wide resource considerations are included in the introduction to these cards. 

____________________________________________________________________________________

Appendix B, Recreation Use Area Cards - Page 124

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
Appendix C 

Visitor Capacity 

Analysis

   
   
Prepared By: 

Appendix C 

Visitor Capacity Analysis 

Ketchikan-Misty Fiords Ranger District (KMRD) 

Lorelei Haukness, Recreation I Wilderness Specialist, KMRD 

Ken Post, Recreation Planner, Alaska Regional Office 

Approved By: f; ,-,,,_AA_,\ 

" "-~-" ! Jeffrey DeFreest, KMRD District Ranger L/ 

Date 
Introduction 

The Ketchikan-Misty Fiords Ranger District (KMRD) conducted an analysis to determine the 

recreation visitor capacity for the District. Visitor capacity is defined as tlte amount of use an 

area will accommodate given the desired natural conditions, visitor experiences, and 

management program (Haas 2002). More specifically, visitor capacity is an administrative 

decision about a reasonable number of recreation opportunities that will be managed for, which 

is consistent with and helps achieve the full management prescription for an area (Whittaker et 

al. 2010). This visitor capacity analysis addresses both guided and unguided use, but will not 

result in any management action to limit or restrict unguided visitors (including unguided 

subsistence users) in any portion of the District, at this time. 

The main purpose of this analysis is to provide a rationale to guide decision-making for 

allocating outfitter and guide use across the District. Some of the variables used to calculate 

capacity (e.g. season dates and group size) were based, therefore, on information about current 

guided use. Capacities were developed in a manner that will facilitate outfitter and guide pennit 

administration on the KMRD. 

In addition to helping with allocation decisions within the guided and unguided sectors, visitor 

capacities also provide predictability for local businesses and communities, help assess when 

recreation demand may warrant an expansion of cun·ent supply, and can serve as a trigger for 

increased, area-specific management attention (Haas 2002). This analysis will allow managers to 

continue to accommodate an economically viable outfitter and guide industry while maintaining 

the integrity of District resources to the benefit of all users. 

Forest Service regulations and policy do not define what is meant by visitor capacity or prescribe 

a specific method for estimating a numerical capacity. Forest Service outfitting and guiding 

policy was revised in 2008 to include the following direction: 

"When monitoring demonstrates that impacts associated with use may exceed desired 

conditions, conduct a resource capacity analysis 10 assess the amount of use and types of 

activities that may be conducted without detrimental environmental and associated 

impacts" (FSH 2709.11 part 41.53e). 

Monitoring indicates that although a high amount of use is concentrated in a few areas and 

locations on the KMRD, existing use levels are in general low and can be accommodated without 

causing unacceptable impacts to the environment or visitor experiences. There is an advantage to 

addressing visitor capacity proactively, however, before impacts become unacceptable or conflict 

develops among stakeholders (Haas 2002, Whitaker et al. 2010). 

It is important to note that a visitor capacity, in and of itself, does not imply any management 

action to limit or encourage use. Capacity is one component of a management prescription that 

also includes management objectives, desired future conditions, resource condition standards, 

and a plan for monitoring (Stankey and Manning 1986). While visitor capacities can inform 

decisions and commitments, they are not themselves commitments (Whitaker et al. 20 I 0). 

Visitor capacities will be reviewed periodically to ensure that assumptions made about recreation 

use trends and impacts still apply, and to incorporate new science, infOlmation, policies, trends, 

plans and other circumstances of importance. If monitoring indicates that the visitor capacities 

2 

____________________________________________________________ Draft Environmental Impact Statement
3

identified in this analysis are incompatible with the desired social conditions identified during 

the KMRD Recreation Planning Project (see Appendix E of this EIS) or resource conditions 

identified in the Tongass National Forest Land and Resource Management Plan (Forest Plan; 

USDA 2008), then capacities will be adjusted accordingly. There is no established methodology 

in Forest Service policy for developing numerical visitor capacities (Cole and Carlson 2010). 

There is some level of uncertainty in describing and analyzing recreational use. Due to 

conditions varying from weather to wildlife sightings to the state of financial markets, the 

location, type, and amount of recreational use in any area changes irregularly, which makes 

calculating capacity difficult. Different Forest Service districts have used different approaches to 

setting visitor capacity and allocating between guided and unguided visitors, each district 

determines what fits best for their area. The KMRD chose a public planning process, Limits of 

Acceptable Change, to inform the visitor capacity analysis. 

Our Approach – Visitor Capacity and Limits of Acceptable

Change Recreation Planning

Recreation use patterns and management challenges in Southeast Alaska differ from those on 

public lands throughout much of the United States. Although a few locations and areas on the 

KMRD receive a high level of use, guided and unguided visitors are generally dispersed across a 

vast area. Use levels are generally low in comparison to capacity and there is a lack of 

monitoring information specific to the impacts of recreation use on components of the 

biophysical environment (e.g. vegetation and wildlife). While information about guided use is 

collected annually, less is understood about unguided use (levels, spatial distribution, and 

temporal patterns). Recreation managers do collect information about trail use, public recreation 

cabin use, and campsite conditions, but much of the KMRD’s unguided use is day use that is 

unassociated with these improvements. Given these challenges, a considerable amount of time 

and effort were invested in developing an approach to establishing visitor capacities that was a 

good “fit” for the KMRD. 

In the 1960s and 1970s, recreation management research increasingly became focused on the 

environmental and social dimensions of visitor capacity. As researchers began to better 

understand the effects of visitor use on resources such as vegetation, water, and wildlife, as well 

as the quality of visitor experiences, it became apparent that even low levels of use can result in 

impacts, and that these impacts were not always directly related to the number of visitors in an 

area (Hendee et al. 1990). Other factors (e.g. trail condition, timing of use, and visitor behavior) 

can have equal or greater influence on the type and amount of impacts resulting from recreation 

use. There is now general agreement that visitor capacity can be determined only when 

prescriptive management objectives are explicitly defined, that those management objectives 

should be formulated and expressed in terms of indicators and standards (Newman et al. 2001, 

Haas 2007, and Whittaker et al. 2010), and that recreation managers should involve the public in 

developing visitor capacities. Although researchers and managers agree that visitor capacities 

should be developedas part of a larger planning framework, there is no established methodology 

in Forest Service policy for developing numerical visitor capacities (Cole and Carlson 2010). 

This capacity analysis was completed as part of the Ketchikan-Misty Fiords Recreation Planning 

Project, which involved the public in a Limits of Acceptable Change (LAC) -based planning 

process to identify desired future conditions, expressed in terms of standards and indicators, for 

____________________________________________________________ Draft Environmental Impact Statement
4

four recreational opportunity zones on the KMRD (see Appendix E of the EIS for details). These 

standards relate to the specific recreational settings desired across the district. Capacity-related 

standards were developed based on information about existing recreation use and impacts, and 

public comments received during the LAC process. Although the standards were not directly 

incorporated in the equation used to calculate visitor capacities, they were used to inform the 

analysis and identify assumptions about the amount of recreational use that can be 

accommodated without unacceptable change to resources and the quality of the visitor 

experience. 

KMRD staff considered several ways to calculate visitor capacity. Comparing existing 

conditions to standards identified during the KMRD Recreation Planning Project was a way to 

determine which calculation method provided reasonable estimates of the amount of visitor use 

that could be accommodated without exceeding standards related to the social experience, based 

on professional judgment about use patterns and impacts. 

Visitor capacity has both environmental and social dimensions. Visitor use can affect biophysical 

resources such as soils, vegetation, water, and wildlife, and it can degrade the quality of visitor 

experiences through crowding, conflicting uses, or aesthetic affects on the environment 

(Whittaker et al. 2010). Forest Service resource specialists and ADF&G biologists were 

consulted during development of standards and asked to provide indicators and standards related 

to key values and impacts for their resources. Unfortunately, there is a lack of baseline 

information about both the natural environment in and around recreational use sites and the 

environmental impacts of recreational use on the KMRD. Even if there was additional 

information available, scientists agree that the relationship between visitor use and impacts is 

often weak (Haas 2007) and poorly understood. Integrating resource and social information into 

visitor capacity decision-making has always been a challenge for managers and researchers 

(Newman et al. 2001). 

One way that managers can address these challenges is by identifying which resources are most 

likely to be at risk with high levels of visitor use (Cole and Carlson 2010) and developing 

standards related to that resource. This analysis was informed primarily by social factors due to 

the district’s conservative approach to account for the “Alaskan Experience” many visitors 

expect. In this regard, the visitor capacities could be considered primarily social capacities. This 

was also the assumption used for other visitor capacities in the Alaska Region. For example, the 

capacity used in the Shoreline Outfitter/Guide EIS stated “[t]he analysis found that the social 

carrying capacity is the most meaningful type of capacity to determine the appropriate recreation 

use levels in the analysis area.” (Shoreline-Based Recreation Carrying Capacity Analysis for the 

Admiralty Island National Monument, Hoonah, Juneau, and Sitka Ranger Districts, 2001, p. 11). 

Both the Wrangell and Petersburg Ranger District visitor capacities determined that physical and 

environmental factors were considered but were not the critical limiting factors. These analyses 

focused on social factors (Petersburg Outfitter and Guide Management Plan EA, 2009, p. A-3 

and Wrangell Outfitter and Guide Management Plan EA, 2009, p. A-3). A 1994 capacity for 

Sixmile Creek on the Chugach National Forest mentions, “[t]his study deals primarily with social 

carrying capacity, though the other types of capacity [ecological, physical, and facility] play a 

role.” (Carrying Capacity Study for National Forest System Lands in the Vicinity of Sixmile 

Creek, 1995, p. 3) 

Another way that managers can integrate resource and social information into visitor capacity 

decision-making is by placing emphasis on a collaborative planning process that will help ensure 

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
5

that the social dimensions of ecological issues are integrated into visitor capacity decisionmaking (Newman et al. 2001). During the KMRD Recreation Planning Project, for example, 

several participants voiced a concern about crowding on popular fishing streams, particularly 

those with a limited number of good fishing holes. While the ADF&G is solely responsible for 

managing fish populations, visitor capacities that address concerns about visitor experience may 

indirectly address resource concerns related to fisheries. 

Public Involvement

The KMRD held a series of ten public meetings between January 2009 and April 2010. Public 

input was systematically incorporated into the process of establishing District-wide recreation 

management objectives and visitor capacities (see Appendix E for more information). Specific 

information about how public participation influenced visitor capacity development during each 

step of the analysis is included below. 

It is important to note that visitor capacities are not “intrinsic” attributes of a place. Capacities 

may change if the value judgments, goals and objectives, or other components of the 

management prescription change (Whitaker et al. 2010). Management actions such as teaching 

visitors Leave No Trace, designating campsites, and making trails more durable, will increase 

capacity, if they are effective in reducing per capita effects of use (Cole and Carlson 2010). 

While public participation does not eliminate the uncertainty associated with visitor capacity 

decision making, it did help identify knowledge gaps, bring attention to key values and concerns, 

and indicate if there was some agreement on the “right” amount of recreational use that should 

be accommodated. 

Comparison to Other Capacity Analyses on the		

Tongass National Forest

As stated earlier, there is no established methodology in Forest Service policy for developing 

numerical visitor capacities (Cole and Carlson 2010). Other districts on the Tongass National 

Forest used different methods to determine visitor capacity for their district. This section looks 

at the different approaches to visitor capacity analysis. 

Visitor capacity analyses completed on the Wrangell and Petersburg Ranger Districts of the 

Tongass National Forest generally followed procedures described in the Recreation Opportunity 

Spectrum (ROS) Book (USFS 1986, p. IV-21) and 2008 Forest Plan (Appendix I). Visitor 

capacities were calculated based on capacity coefficients unique to each ROS class and the 

number of acres available. Capacity coefficients published in the ROS handbook were developed 

in the early 1980s and coefficients were based on concerns about impacts to the environment and 

visitor experience, but the thresholds (standards) used to develop the coefficients were implicit 

(Cole and Carlson 2010). The Wrangell and Petersburg Districts also analyzed recreation visitor 

capacity by recreation place, rather than study area. The two districts did this in an effort to 

include only usable acres and the actual footprint of recreation activities. Both districts used 

recreation visitor days (RVDs) as the unit of measure for visitor capacity, with one RVD being 

equal to 12 hours recreation use on National Forest System lands or water by an outfitter or 

guide client(s). For example, if one person spends 12 hours on National Forest System lands or 

____________________________________________________________ Draft Environmental Impact Statement
6

water that is counted as one RVD, which is measured the same as 12 people spending one hour 

on National Forest System lands or water. 

The Shoreline Outfitter/Guide EIS established visitor capacities for Admiralty National 

Monument and the Hoonah, Juneau, and Sitka Ranger Districts of the Tongass (USDA 2004). 

The capacity was determined by using the number of acres, which may have inflated numbers of 

RVDs available, misleading the public. Like use patterns on the KMRD, use on the northern part 

of the Forest is often concentrated in a few locations due to an attraction such as bear viewing, 

good anchorages, or fishing opportunities. Some members of the public had a difficult time 

understanding the Shoreline EIS visitor capacity analysis due to the difficulty of the terminology 

and equations (Mary Emerick, pers. comm. 2009). Some felt that it would have been helpful to 

use a term such as “service days” that was more familiar to the public, particularly 

outfitter/guides. 

Currently, the Craig and Thorne Bay Ranger Districts are trying to establish a visitor capacity for 

Prince of Wales Island (POW) and the surrounding islands. The POW districts are determining 

the visitor capacity based on ROS Class, recreation site, and predominant outfitter and guide 

activity at each site. They are completing their analysis based on visitor service days, which is 

one person on national forest system lands for any part of a day. The POW visitor capacity is 

still in the preliminary stages, no NEPA has been completed. 

The KMRD visitor capacity analysis differs from others completed on the Tongass National 

Forest in the following key ways: 

 One goal in developing visitor capacities for the KMRD was to explicitly state, in the form of 

standards, the level of visitor impacts considered “acceptable” and to base those standards on 

desired future conditions identified during a public process. 

 Like the other districts, we determined that a capacity based on total available acres was 

unreasonable. Instead of basing the analysis on recreation places as the Wrangell and 

Petersburg Ranger Districts did, we narrowed the analysis down further to locations with 

known or reported guided or unguided use. Much of the KMRD is remote and difficult to 

access. Use is concentrated in locations with good moorage or beach access and recreational 

attractions such as trails, public recreation cabins, good campsites, and fishing streams. 

Based on professional judgment and knowledge of historical and existing use patterns, a 

capacity based on overall acreage would be very large and could result in a level of crowding 

well above what is generally expected in Southeast Alaska and in designated wilderness. 

 Visitor service days were chosen as the measure of use versus recreation visitor days 

(Wrangell and Petersburg Ranger Districts EAs) and group days (Shoreline Outfitter/Guide 

EIS). The Wrangell and Petersburg Ranger Districts have been tracking outfitter/guide use in 

RVDs for over a decade and KMRD has monitored use using service days. In addition, we 

felt more comfortable using less criteria (length of season, number of sites, and group size) 

rather than a large number of criteria, including several coefficients that are less tangible (e.g. 

ROS Capacity Coefficient and Pattern of Use Coefficient; WRD and PRD EAs, pages A-4 

through A-8). Group days were also not used because that measure of use was developed to 

help respond to concerns about group size (Shoreline Outfitter/Guide EIS, p. 2-3), which has 

not proven to be a major issue on the KMRD. In addition, there is confusion about 

calculating and tracking group days. 

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
7

Management Objectives

This capacity analysis helps achieve management prescriptions provided in the Forest Plan and 

recreational setting standards established during the KMRD Recreation Planning Project. It is 

the goal of the Tongass National Forest to provide a range of recreation opportunities consistent 

with public demand, emphasizing locally popular recreation places and those important to the 

tourism industry. This analysis, and related allocation decisions, will allow outfitter and guide 

use management in accordance with the standards and guidelines identified in the Forest Plan 

and the desired future conditions identified during the KMRD Recreation Planning Project. 

Analysis Area

The analysis area includes all National Forest System (NFS) lands and waters managed by the 

Ketchikan-Misty Fiords Ranger District (KMRD). It does not include road-accessible 

interpretive centers or road-accessible developed recreational facilities, such as the Southeast 

Alaska Discovery Center, Fish Creek Wildlife Observation Site, and campgrounds and day use 

facilities in the Ward Lake Recreation Area. The analysis area also does not include State, 

Native, or private lands within or adjacent to the National Forest. 

Calculating Visitor Capacity

Visitor capacity, expressed as a number of visitor service days, was calculated for each of the 

KMRD’s 28 recreation use areas for three seasons (spring, summer and fall). A winter capacity 

is not needed at this time because winter use is currently very low and is not anticipated to 

increase in the immediate future. 

Three variables were used to calculate visitor capacity for each use area: number of capacity 

locations, average guided group size, and length of the season (expressed in # of days). The total 

visitor capacity for the KMRD equals the sum of the visitor capacities for each use area. 

Public input and information about existing guided and unguided use patterns and impacts was 

incorporated throughout the analysis. Each step of the analysis (Figure 1), along with the 

assumptions and information considered, is described in detail below. 

Among researchers, there has been considerable debate about whether visitor capacity should be 

defined as the “maximum amount” of recreation use that can be accommodated without 

unacceptable change to resources and the quality of the visitor experience, or a “reasonable use 

level” that fits with the management prescription for an area (Whittaker et al. 2010). This 

analysis is consistent with both the “reasonable use level” and “maximum amount” approaches. 

The visitor capacities are designed as the maximum amount of recreation use allowed in order to 

maintain the standards and guidelines identified during the LAC process, however, they are at a 

“reasonable use level” compared to Forest Plan standards and guidelines. Reasonable use levels 

fit for the following reasons: 

 Public comments and visitor interviews indicate that KMRD visitors expect an “Alaskan 

experience” when recreating on the KMRD. Solitude is highly valued among our guided and 

unguided visitors and the “maximum use level” may therefore be incompatible with desired 

____________________________________________________________ Draft Environmental Impact Statement
8

social conditions. Comments received during a series of public meetings also indicated that 

solitude is an expectation that our visitors have whether they are on the wilderness or nonwilderness portions of the District. 

 Two-thirds of the KMRD is included in the federally-designated Misty Fiords National 

Monument Wilderness. Use levels are currently low in most parts of the Wilderness, and the 

Wilderness Act directs managers to maintain existing opportunities for solitude. In 

wilderness, it is important to use the precautionary principle to make conservative capacity 

estimates until additional monitoring data are available and predications that are more 

accurate can be made (Cole and Carlson 2010). 

 Public comments also indicate a desire to maintain the “status quo” when it comes to visitor 

experiences on the KMRD. Concern was expressed that visitor capacities should not allow 

for a large increase in use, particularly in wilderness and in areas popular with the unguided 

public. 

 A large portion of the District is relatively inaccessible and recreational use is unevenly 

distributed over space and time. Based on existing use patterns, it was our decision that a 

visitor capacity that represented the maximum use level would, therefore, be inconsistent 

with desired future conditions developed during the public process, particularly standards 

related to the visitor experience. 

Figure 1. Process for Calculating Visitor Capacity

Public

Involvement

Map

Recreation

Use Areas

Identify  

Visitor

Capacity

Locations

Determine

Average

Guided Group

Size by Area

Define

spring,

summer,

and fall

capacity

seasons.

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
9

Mapping Recreation Use Areas

Twenty‐eight recreation use areas (Figure 2) were identified based on primary

method of access, visitor use patterns, Land Use Designations (LUDs; e.g.

Wilderness), Recreation Opportunity Zone, and geography (e.g. watershed

boundaries).		

Forest Service staff began mapping KMRD’s recreation use areas in 2007 and initially identified 

17 Areas. Based on the comments gathered at public meetings and from district resource 

specialists (e.g. archeologist, wildlife biologist), Alaska Department of Fish and Game 

(ADF&G) biologists, and from recreation professionals familiar with implementing visitor 

capacities in other locations, the following changes were made. 

 We reduced the size of several recreation use areas. The number of analysis areas was 

increased from 17 to 28. Forest Service resource specialists and meeting participants voiced 

concerns that the initial areas were too large. Specifically, there was concern that bays and/or 

upland areas initially lumped together receive very different types and amounts of 

recreational use. 

 Special use permit administrators also voiced concerns that as areas were broken down into 

smaller units for this analysis, monitoring would become increasingly difficult and 

outfitters/guides would have less flexibility in their itineraries. Flexibility is particularly 

important to outfitters and guides operating in Southeast Alaska because weather and tides 

often dictate patterns of use. 

 The 28 recreation use areas identified for this analysis represent a balanced approach. If use 

patterns change or monitoring indicates that smaller analysis areas are warranted to address 

location-specific concerns, then the recreation-use-area boundaries can be changed 

accordingly. It is expected that modifications made to the recreation use areas will result in 

efficient management of outfitter and guide use. 

 Through the process, recreation-use-area-boundaries were changed to ensure that each area 

could be allocated to a single recreation opportunity zone. Having a single set of standards 

for conditions in each recreation use area will simplify future monitoring efforts (Cole and 

Carlson 2010.) 

 Changed boundaries to reflect primary method of access. This change was made to address 

the concern that one type of activity or tour would be favored when authorizing 

outfitter/guide use in a high-demand Use Area. For example, in areas where use levels are 

approaching capacity (e.g. core area of Misty Fiords National Monument Wilderness) we 

separated the lakes that are commonly accessed by floatplane (06 Misty Core Lakes Use 

Area) from shoreline areas commonly accessed by boat (10 Rudyerd Winstanley Use Area). 

Although this change will address some outfitter and guide concerns and simplify permit 

administration, in areas where the demand for outfitter and guide activities exceeds 

allocation, a competitive process will still be required to determine the extent of each type of 

guided activity that will be permitted. Preference will be given to outfitters and guides who 

have historically operated in these areas and demonstrated good performance.

____________________________________________________________ Draft Environmental Impact Statement
10

Figure 2. Ketchikan‐Misty Fiords 28 Recreation Use Areas

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
11

Visitor capacity locations, defined as the locations used to calculate visitor

capacities, were identified based on information about current recreational use

patterns and impacts.

Step 1: Three types of locations were considered when identifying visitor capacity locations: 

dispersed recreation sites, outfitter and guide use locations, and reported sites. It is important to

note that these sites and locations often overlap.

 A dispersed recreation site is defined as “an area exhibiting evidence of recreational use, 

either through day or overnight activity” (Alaska Region Wilderness Campsite Definitions 

and Campsite Inventory Protocols 2003). Dispersed recreation sites have been inventoried by 

Forest Service field crews and assigned an impact rating based on: 

1. vegetation loss, 

2. tree damage, 

3. development (e.g. fire rings and 

primitive benches), 

4. number and condition of social trails, 

5. site area, and 

6. cleanliness. 

 Only dispersed recreation sites with moderate to high impacts were used in the visitor 

capacity analysis. While common on the wilderness and non-wilderness portions of the 

District, low-impact sites are generally used infrequently and the only impact or sign of 

human use at these locations may be a small amount of garbage or an old, abandoned fire 

ring. 

 An outfitter and guide use location is defined as a location used by an outfitter and guide 

three or more times in the past five years. These locations were identified using the Tongass 

Outfitter and Guide Database1

. Outfitter and guide locations that were used only once or 

twice during the last five years were not considered in the capacity analysis. 

 Reported sites are sites where recreation use has been reported. Reported sites are frequently 

in areas that have not been inventoried in the past several years, particularly, general forest 

areas on the KMRD (those outside of Misty Fiords National Monument Wilderness.) 

Step 2: Dispersed recreation sites, outfitter and guide locations, and reported sites were then

grouped together and considered a single visitor capacity location, if they met the following

criteria:

 Sites or locations within sight or sound of each other, 

 Sites or locations on the same lake, 

 Sites or locations that met proximity guidelines (by Recreation Opportunity Zone): 

1) Primitive Wilderness and Semi-Primitive Wilderness: within 1 1⁄2 miles of each other, 

                                                      

1 The Tongass Outfitter and Guide Database is used to record and track information about actual guided use across

the Tongass National Forest. Use information is submitted annually by outfitters and guides and includes specific

data about location, date of use, activity, group size, and duration of stay. Information submitted for use between

2004 and 2008 was included in this analysis.

____________________________________________________________ Draft Environmental Impact Statement
12

2) Semi-Primitive Non-Wilderness: within 1 mile of each other, and 

3) Natural Accessible: within 1⁄4 mile of each other. 

We received several comments from the public regarding our methodology for identifying visitor 

capacity locations. Concern was expressed that additional guided use locations may be identified 

without causing unacceptable impacts to resources or visitor experiences and that we should 

include all dispersed recreation sites and outfitter and guide locations in the analysis, regardless 

of the amount of impact or use occurring there. 

In response to this feedback, we modified our proximity criteria for grouping sites and locations 

in wilderness. Initially we proposed to group locations in Primitive Wilderness and SemiPrimitive Wilderness within 2 miles of each other together and we changed the grouping 

criterion to within 1.5 miles of each other (as indicated above). This modification resulted in the 

inclusion of additional Visitor Capacity Locations in the analysis, and a slightly higher visitor 

capacity overall. Given the dispersed nature of recreation on the KMRD, and the topographical 

barriers (e.g. rocky and inaccessible shoreline areas) between campsites, using a proximity factor 

of 1.5 miles should adequately protect opportunities for solitude on wilderness portions of the 

District. 

A large portion of the District, however, is relatively inaccessible and recreational use is 

unevenly distributed over space and time. When low impact sites and infrequently used outfitter 

and guide locations were considered, visitor capacities were greatly inflated. It was our decision, 

based on professional judgment of existing use patterns and impacts, that a visitor capacity that 

included every known use location was inconsistent with our management prescriptions, 

particularly our standards related to the visitor experience. 

The decision to include known use and impact locations in the analysis, versus all accessible 

acreage, is consistent with the definition of visitor capacity as a “reasonable use level” for Forest 

Plan standards and guidelines. The decision is based on the assumption that certain locations are 

attractive to visitors because of the types of recreation opportunities available (e.g. salmon 

streams for fishing, hiking trails, camping locations, and public use cabins), ease of access, and 

unique scenic qualities. Large portions of the district are inaccessible and/or less desirable for 

recreational use, which tends to be concentrated over time (e.g. during a particular hunting or 

fishing season) and space, rather than evenly distributed. 

The Northeast Misty Use Area, for example, is comprised of approximately 1,301,578 acres. No 

Forest Service facilities are provided in this vast area and much of its coastline and interior 

portions are difficult to access. Recreation use and impacts are concentrated along the Upper 

Portland Canal (e.g. Halibut Rock), two accessible coves in the upper East Behm Canal 

(Robinson Creek and Saks Cove), and several dispersed lakes that are only accessible via 

floatplane (e.g. Todd, Silt, and Leduc Lakes). Twelve capacity locations were identified in order 

to calculate seasonal visitor capacities for the Northeast Misty Use Area. 

This analysis is based on the assumption that recreation activities and impacts will continue to be 

concentrated in areas where access is feasible and desirable recreational opportunities exist (e.g. 

fishing and hunting). A calculation of visitor capacity based on overall acreage of the Use Area 

may exceed the “reasonable use level” that can be accommodated without unacceptable impacts 

to resources, wilderness character, and visitor experiences in the areas of actual use. It is 

important to note that when this capacity analysis is revisited in approximately five years, 

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
13

additional monitoring information will be available and new capacity locations may be included 

based on changes in guided and unguided use and impacts. 

Determine Average Guided Group Size by Area

For each Use Area, we multiplied the number of Capacity Locations times the number of days in 

each season, to calculate visitor capacity in groups. In order to calculate visitor capacity in 

number of visitor service days, which is the unit used in outfitter and guide permit 

administration, the capacity expressed as the number of groups was multiplied by average guided 

group size for each Recreation Use Area. 

Average guided group size was determined for each Use Area based on information provided in 

the Tongass Outfitter and Guide Database. In areas with less than 40 groups of guided visitors in 

the past five years (2004-2008), the District-wide average guided group size (3.9 visitors) was 

used to calculate visitor capacity in number of visitor service days. In areas historically used by 

larger guided groups, including the Ketchikan Core NA, Hyder NA, and Betton Island Use 

Areas, an average guided group size of 12 was used to calculate visitor capacity in visitor service 

days. The Forest Plan indicates that in semi-primitive settings outside of wilderness party size 

should generally be limited to 12 – 20 people (Recreation and Tourism 4-46). The decision to 

use an average guided group size of 12 versus 20 in areas historically used by larger guided 

groups is consistent with the definition of visitor capacity as a “reasonable use level” versus a 

“maximum use level.” Ketchikan Core NA, Hyder NA, and Betton Island NA Use Area each 

have one or two locations where average guided group size exceeds 12. Average guided and 

unguided group size at the other locations within the Uses Areas is considerably smaller. 

Guided group size is often influenced by the method of access and types of activities provided in 

the area. For example, in the South Misty and West Cleveland Use Areas average guided group 

size is 2.4 and 1.7 individuals, respectively. These areas are difficult to access and most 

commonly used for guided hunting and fishing, an activity that tends to involve a small number 

of clients per group. In contrast, an average group size of 12 was used for the Betton Island Use 

Area. This Area is commonly used for larger boat-based companies that provide hiking and 

kayaking tours in an area relatively close to town. 

The decision to use average guided group size was based on the following considerations and 

assumptions: 

 Little information exists about the size of unguided groups visiting the KMRD. The average 

unguided group using a Forest Service public use cabin in 2009 was 3.75 people 

(http://www.reserveamerica.com/). Information gathered at trailhead registers between 2008 

and 2010 indicates that the average group size was 3.26. This may include some guided and 

some unguided visitor groups. 

 In remote areas where guided group size tends to be smaller, the recreational emphasis is on 

activities such as hiking, fishing, and camping. Visitors engaged in these activities desire a 

high degree of solitude. Areas that are closer to town, and more easily accessible, tend to 

attract more people and larger groups. Visitors in these areas have less expectation of 

experiencing solitude. 

 Similar types of guided and unguided activities occur in many areas. Guided and unguided 

visitors are drawn to similar areas for similar experiences and unguided group sizes, although 

____________________________________________________________ Draft Environmental Impact Statement
14

generally slightly smaller, are determined by the type of activity and experience being sought 

by the visitor. 

Define Visitor Capacity Seasons

The following dates define the spring, summer, and fall season and perspective visitor capacities: 

Spring: April 20 through May 14 (23 days) 

Summer: May 15 through September 30 (139 days) 

Fall: October 1 through October 20 (20 days) 

To assist with outfitter and guide permit administration, season dates were established based on 

actual use information provided in the Tongass Outfitter and Guide Database. The spring season 

begins on the District-wide median start date for outfitter and guide use between 2004 and 2008, 

April 20. The summer season start and end dates are based on the median start and end dates for 

floatplane landing tours on the three highest-use lakes in Misty Fiords National Monument 

Wilderness (Manzoni, Nooya and Big Goat Lakes). The summer season dates also correlate with 

the heavy use season on the District. The fall season end-date, October 20, is based on the 

median District-wide end date for outfitter and guide use (again, between 2004 and 2008). Most, 

but not all, guided hunting activities occur prior to October 20. Because use is so far below 

capacity during the winter months, additional analysis and precise winter capacities are 

unwarranted at this time (Whitaker et al. 2010). 

Seasons were defined based on use patterns for our most popular guided activity, floatplanelanding tours. Floatplane landing tours make up a large portion of the total guided use on 

KMRD. Social conditions, particularly encounter and floatplane landing rates, as well as impacts 

to wilderness character from high use levels and motorized methods of access in the Misty Core 

Use Area were considered a limiting factor when establishing visitor capacities. The mean start 

and end date was used because depending on weather conditions and ice cover, guided landings 

on these lakes may begin anywhere between early May and late June; the median dates provide 

the best estimation of what amount of use can be reasonably accommodated within prescribed 

standards for social conditions. 

Concern was expressed by big game hunting guides that the overlap of their fall hunting season 

(as defined by ADF&G) and the visitor capacity summer season would result in a limited amount 

of use available for hunting guides in the Misty Core Lakes Use Area during the time between 

September 1 and September 30. The Misty Core Lakes Use Area is one of the few on the KMRD 

where existing summer season use levels are exceeding visitor capacity. Guided hunting, 

however, is a small proportion of the total amount of guided use in the Misty Core Lakes Use 

Area and if use during the summer season is limited as a result of this analysis and / or the 

subsequent collection of monitoring information, consideration will be given to outfitters and 

guides historically operating in the Area. 

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
15

Calculating Visitor Capacity by Recreation Use Area

Visitor Capacity (expressed in Visitor Service Days) =		

# of Capacity Locations  X   

Average guided group size  X  

# of days in the spring, summer and fall seasons     

The visitor capacity calculation is based on the conservative assumption that only one group can 

be accommodated at each Capacity Location each day during the season. In reality, a location 

may be able to accommodate several groups in one day without negative impacts to visitor 

experience. For example, floatplane-landing tours typically spend no more than 30 minutes on 

National Forest System lakes. Several groups, or planes, could, therefore, be accommodated on a 

lake each day without exceeding the standards established for social encounter and guided lakelanding rates. 

A high percentage of Southeast Alaska’s visitors, however, travel by cruise ship and their short 

stay in Ketchikan allows for a 1⁄2-day excursion in the morning. This results in a concentration of 

guided use in the earlier part of the day and in locations that are easily accessed. Although clients 

participating in some guided activities (e.g. shoreline use, hiking, floatplane landing tours) may 

spend less time on shore and have a higher tolerance for encounters with other visitors, many of 

the guided and unguided activities taking place on the District require a greater degree of 

solitude (e.g. hunting, fishing, camping). 

The visitor capacity calculation also is based on the assumption that each location can be used 

each day of the spring, summer, and fall seasons. In reality, many locations are not used 

regularly; factors such as weather, ice cover (floatplane landing tours), and availability of desired 

recreation opportunities (e.g. salmon spawning) influence the amount of use that occurs, or does 

not occur, in a particular location each day. Nooya Lake, for example, is one of the highest-use 

locations on the District. In 2007 and 2008, guided use at Nooya was only reported on 59 and 32 

days, respectively, of the 139-day summer season. Use of Nooya Lake is limited by weather 

factors such as ice cover on the lake and low cloud ceilings that make the lake inaccessible via 

floatplane many days of the year. A balance is created by including both liberal and conservative 

assumptions in the visitor capacity calculations. 

   

____________________________________________________________ Draft Environmental Impact Statement
16

Table 1. Visitor Capacity Estimates for the Ketchikan‐Misty Fiords Ranger District's

Recreation Use Areas

Recreation Use Area

# of

Capacity

Locations  

Average

Guided

Group

Size  

Seasonal Visitor Capacity    (# of visitor days)

Total

Visitor

Capacity

Spring Season

(Apr. 20 ‐ May

14)

Summer

Season     

(May 15 ‐ 

Sept. 30)

Fall

Season      

(Oct. 1 ‐ 

Oct. 20)

01 West Misty   5 2.6 299 1,807 260 2,366

02 Northeast Misty 12 3.4 938 5,671 816 7,426

03 South Misty 16 2.4 883 5,338 768 6,989

04 Duke Island 4 3.9 359 2,168 312 2,839

05 South Misty Lakes 3 3.8 262 1,585 228 2,075

06 Misty Core Lakes 13 5.4 1,615 9,758 1,404 12,776

07 Walker Chickamin 3 3.2 221 1,334 192 1,747

08 Burroughs Unuk 4 2.7 248 1,501 216 1,966

09 Alava Princess

Manzanita 5 3.9 449 2,711 390 3,549

10 Rudyerd Winstanley 6 3.6 497 3,002 432 3,931

11 Gravina Island 6 3.9 538 3,253 468 4,259

12 Bell Island 12 4.2 1,159 7,006 1,008 9,173

13 East Cleveland 7 3.9 628 3,795 546 4,969

14 West Cleveland 4 3.9 359 2,168 312 2,839

15 Wilson / Bakewell 3 3.7 255 1,543 222 2,020

16 Ketchikan Core SPNW 2 3.9 179 1,084 156 1,420

17 George Carroll Thorne 8 3.9 718 4,337 624 5,678

18 Central Revilla SPNW 4 6.9 635 3,836 552 5,023

19 North Revilla   6 3.9 538 3,253 468 4,259

20 Hyder SPNW 3 3.9 269 1,626 234 2,129

21 Percy Hotspur Mary

Islands 3 3.9 269 1,626 234 2,129

22 Hyder NA 2 3.9 179 1,084 156 1,420

23 Betton Island 7 12 1,932 11,676 1,680 15,288

24 Ketchikan Core NA 13 12 3,588 21,684 3,120 28,392

25 South Revilla NA 4 3.9 359 2,168 312 2,839

26 Central Revilla NA      4 3.9 359 2,168 312 2,839

27 Margaret Bay 4 6.6 607 3,670 528 4,805

28 Naha Bay 4 3.9 359 2,168 312 2,839

TOTAL ANNUAL VISITOR CAPACITY FOR KETCHIKAN‐MISTY FIORDS RANGER DISTRICT

   147,984

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
17

Findings

There is considerable opportunity for growth of the recreation and tourism industry on the 

Ketchikan-Misty Fiords Ranger District of the Tongass National Forest (Table 2). In 2009, 

approximately 28,000 visitor service days (less than six percent of the overall visitor capacity) 

were authorized for outfitter and guide use on the Ketchikan-Misty Fiords Ranger District. 

Actual outfitter and guide use is lower than the amount authorized; in 2009, approximately 

18,500 visitor service days were reported by outfitters and guides. 

Table 2. Comparison of the KMRD visitor capacity with authorized and actual outfitter and guide

use in 2009

Visitor Capacity

(visitor service days)

Authorized  

Outfitter & Guide Use

(visitor service days)

Actual  

Outfitter and Guide Use

(visitor service days)

Spring Season

(Apr. 20‐May 14) 18,701 N/A1 1,765

Summer Season

(May 15‐Sept. 30) 100,824 N/A1 16,521

Fall Season

(Oct. 1‐Oct. 20) 28,459 N/A1 35

Total 147,984 28,000 18,321 1 Outfitter and guide use is not authorized by season. Reported guide use is used to compare seasonal use with

seasonal visitor capacities.

The Misty Core Lakes Use Area (within the Misty Fiords National Monument Wilderness) is the 

only recreation use area on the KMRD where conditions at some locations are approaching or 

exceeding standards established during the KMRD Recreation Planning Project (Appendix B). 

Visitor capacity for this use area is 1,615 service days, 9758 service days, and 1,404 service days 

for the spring, summer and fall seasons, respectively (for a total of 12,776 service days 

annually). Almost all use in this area occurs during the summer months when the lakes are not 

frozen and floatplanes can be used for access. In 2009, outfitter and guides reported 

approximately 6,500 visitor service days in the Misty Core Lakes Use Area, which accounts for 

66% of the total visitor capacity. Visitor surveys and public comments received during our 

meetings also indicate there is concern about the high level of use in this area, particularly 

regarding the noise impacts from floatplane traffic on visitor experience and wilderness 

character. 

The Rudyerd Winstanley Use Area, also within designated wilderness, is another area where 

conflicts have been reported between visitors. Concern has been expressed by unguided visitors 

and outfitter/guides about conflict between incompatible activities (e.g. bear viewing and bear 

hunting, visitors traveling by floatplane versus motorized or non-motorized boat) and crowding 

at popular overnight locations (e.g. Punchbowl Cove campsite and Winstanley Island public use 

cabin.) The majority of guided and unguided use in this area occurs during the summer. 

Although unguided visitors sometimes take advantage of the “shoulder season” to visit this 

popular area, weather conditions make access challenging outside of the summer season. Visitor 

____________________________________________________________ Draft Environmental Impact Statement
18

capacity for this use area is 497 service days, 3,002 service days, and 432 service days for the 

spring, summer and fall seasons, respectively (for a total of 3,931 service days annually). In 

2009, actual use by outfitter and guides was 89 visitor service days, which accounts for 

approximately 3% of the visitor capacity. Crowding in this area is more likely not an issue of 

approaching or exceeding capacity, but a result of concentrated use in one or two areas. 

Education efforts will be implemented to distribute use during holidays and weekends and 

inform visitors about camping opportunities available in addition to the most popular locations. 

If these efforts are unsuccessful, the guided use allocation for this area may be reduced. 

____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
19

References

Cole, D. and T. Carlson. 2010. Numerical visitor capacity: a guide to its use in wilderness. Gen. 

Tech. Rep. RMRS-GTR-247. Fort Collins, CO: U.S. Department of Agriculture, Forest Service, 

Rocky Mountain Research Station. 20 p. 

The George Wright FORUM: Newman, P., Marion, J. L., K. Cahill. 2001. Volume 18 Number 3 

p. 28-40. “Integrating Resource, Social, and Managerial Indicators of Quality into Carrying 

Capacity Decision-Making” 

Haas, G. E. 2002. Visitor Capacity on Public Lands and Waters: Making Better Decisions. A 

Report of the Federal Interagency Task Force on Visitor Capacity on Public Lands. Submitted to 

the Assistant Secretary for Fish and Wildlife and Parks, U.S. Department of the Interior, 

Washington D.C. May 1, 2002. Published by the National Recreation and Park Association, 

Ashburn, Virginia. 

Haas, Glenn E. 2007. The Myths of Visitor Capacity. Parks & Recreation September 2007” The 

Myths of Visitor Capacity” 

Hendee, J.C., Stankey, G.H. and R.C. Lucas. 1990. Wilderness Management. Second Ed., 

revised. Fulcrum Publishing: Golden. p. 216-219. 

http://www.reserveamerica.com/. Accessed on 1/11/2011. 

USDA Forest Service. 2008. Land and Resource Management Plan. Tongass National Forest. 

R10-MB-603b. USDA Forest Service, Alaska Region, Juneau. 

USDA Forest Service. 1986. 1986 ROS Book, unpublished report, Juneau. 

Stankey, G. and R. Manning. 1986. Carrying capacity of recreation settings. A Literature 

Review: The President's Commission on Americans Outdoors. Washington, D.C.: U.S. 

Government Printing Office, M-47-M-57. 

USFS, Region 10 Wilderness Campsite Definitions and Campsite Inventory Protocols, 2003. 

Whitaker, D., Shelby, B., Manning, R., Cole, D., G. Haas. 2010. Capacity Reconsidered: Finding 

Consensus and Clarifying Differences. National Association of Recreation Resource Planners, 

Marienville, Pennsylvania. (www.narrp.org) 

____________________________________________________________ Draft Environmental Impact Statement
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Appendix D 

Potential Adaptive 

Management Actions 

Related to Natural 

Resources

   
   
Appendix D, Adaptive Management – Page 1 

Appendix D 

Potential Adaptive Management Actions Related to Natural 

Resources 

The following measures are designed to reduce or prevent undesirable effects to a resource. The 

following recommendations are options that could be used to implement the adaptive 

management strategy for the Ketchikan-Misty Outfitter and Guide Management Plan. The list is 

not all-encompassing or conclusive. Adaptive management options can be added to the list at 

any time. Options on the list can be modified. Recommendations can be implemented 

singularly or in conjunction. Some (such as treating weeds) would require new NEPA analysis 

or may be covered under previous NEPA. 

Sensitive Plants and Lichen, and Rare Plants 

Implementing any of the recommended mitigation measures would reduce impacts to sensitive 

plants and lichen or rare plants and/or their suitable habitats. Permit administrators will work 

with the KMRD Botanist to choose and implement the mitigations when and wherever 

necessary. For the remainder of this document, a sensitive plant or lichen will be included in the 

phrase “rare plants”. 

For adaptive management, a “substantial impact” to a rare plant or their suitable habitats is 

defined as any observable or measureable effect in which: 1) the viability of an individual that 

occurs infrequently or within small populations is at risk; and, 2) the viability of a population 

within the project area is at risk. If the viability of a species within the project area is at risk, 

then “detrimental impacts” have occurred and all efforts to stop the impacts and avoid the 

impacts will be implemented, in addition to emergency measures not identified within this list.

To Prevent the Impact

 Educate O/Gs on rare plant ecology. Enable O/Gs as plant stewards and facilitate 

communication. Provide O/Gs with pamphlets on vegetation ecology. 

 Educate permit administrators on rare plant ecology. 

 Educate recreation monitors on rare plant identification. Provide monitors the tools and 

resources necessary to make accurate identifications, collections, and occurrence records. 

To Avoid the Impact

 Survey O/G permitted use sites to determine presence or absence of rare plants. To avoid 

the impact, surveys would occur prior to permit issuance. In some instances, surveys can 

occur during the life of the permit, but prior to moderate to heavy vegetation loss. 
Ketchikan-Misty Fiords Outfitter and Guide Management Plan 

Appendix D, Adaptive Management – Page 2 

To Minimize the Impact

 Survey O/G permitted use sites to determine presence or absence of rare plants. To avoid 

the impact, surveys would occur prior to permit issuance. In some instances, surveys can 

occur during the life of the permit, but prior to moderate to heavy vegetation loss. 

 Restrict O/G activities within habitats where low amounts of O/G use are visibly 

impacting vegetation. Redirect O/G use into habitats with durable vegetation. 

 Avoid the creation of new “dispersed” recreation sites with visible signs of vegetation 

loss. 

 Revegetation – Revegetate dispersed recreation sites with locally collected, site 

applicable, native plant material to encourage plant growth in areas that have experience 

vegetation loss. 

 Invasive Species – Implement measures to limit the introduction, establishment, and 

spread of invasive species. Please see the Ketchikan-Misty Fiords O/G Management 

Plan Invasive Species Risk Assessment for possible mitigations. 

 Leave No Trace - Require O/Gs to follow LNT principles as described by the Center for 

Outdoor Ethics (LNT 2008): 

 Travel on durable surfaces to prevent the creation of trails. When possible, travel on 

maintained trails. In the backcountry, guided users should spread out, and not walk 

single-file. Trails are created when vegetation is trampled beyond recovery. Durable 

surfaces include rocks, gravel, dry grasses, and snow. 

 Camp on durable surfaces to prevent the creation of campsites. In the absence of a 

durable surface, camp in areas where vegetation is absent. In the backcountry, guided 

users should spread out and avoid places where impacts are beginning and visible. 

Durable surfaces include rocks, gravel, dry grasses, and snow. 

 Disperse use. Vegetation is lost when sites are used too frequently or by too large a 

group. 

 Leave what is found. Guided users should not cut or modify live vegetation, collect 

plants, collect rocks, dig trenches, or modify campsites in any way. 

 Hardened Sites - In moderate to heavy use areas with habitats that are susceptible to 

impacts, use should be contained to specific hardened sites. This would avoid increases 

in the amount of area disturbed. 

 Permit outfitter and guides to use hardened sites if the amount of annual service days 

authorized to one site will cause moderate to heavy vegetation loss. A hardened, 

temporary site may be a site with an existing dispersed campsite with a R10 Campsite 

Rating of moderate to heavy. A hardened, permanent site may be an administrative 

site, such as a maintained trail or shelter. 

 Develop a dispersed site into a hardened, permanent site when heavy vegetation loss 

is obvious, and use is expected to increase. 

 Require flightseeing landing tours to land at designated, hardened, temporary sites for 

all shoreline stops. Hardened sites would be bedrock or sites that would rate a 
Draft Environmental Impact Statement 

Appendix D, Adaptive Management – Page 3 

moderate to heavy if the vegetation section of the R10 campsite rating protocol were 

utilized. 

To Stop the Impact

 Stop all O/G use at a site if the viability of a specific rare plant population is determined 

to be threatened by the activities associated with O/G use. 

Invasive Plants 

Implementing any of the recommended mitigation measures would reduce impacts from the 

introduction, establishment, and spread of invasive plants. Permit administrators will work with 

the KMRD Botanist to choose and implement the mitigations when and wherever necessary. 

For adaptive management, a “substantial impact” to or from invasive plants would include : 1) 

observable negative effects to other resources; 2) introduction and establishment of a high 

priority invasive species not known to previously occur on the KMRD and requiring immediate 

action; and, 3) increased spread of an invasive species because of actions associated with any 

type of recreation use.

Prevention 

 Continue inventory of invasive plants at known outfitter and guide use locations. 

 Notify the District Botanist when an invasive plant is encountered within the project area. 

 Retain native vegetation cover and canopy cover within and around each outfitter and 

guide use site to prevent establishment of invasive species. 

 Minimize soil disturbance to prevent the establishment of invasive species. 

 Encourage outfitter and guides to maintain weed-free business environments. 

Education and Trainings 

 Provide annual invasive plant identification, prevention, and ecology training to all 

District staff, including seasonal and volunteers, and permitted outfitter and guides. 

 Provide weed identification and prevention methods material to all recreation staff and 

permitted outfitter and guides. 

 Inform visitors and the local public on invasive species ecology though pamphlets, signs, 

announcements, outreach, and displays. 

Control Measures 

 Immediately respond to any notification of an aquatic invasive species. 

 Post a Closure Order in any area where the threat of spreading an existing or newly 

discovered High Priority or unrated invasive species infestation is highly likely and the 

consequences detrimental to resources. 
Ketchikan-Misty Fiords Outfitter and Guide Management Plan 

Appendix D, Adaptive Management – Page 4 

 Treat Tongass National Forest High Priority invasive species in areas used by outfitter 

and guides to prevent spread of infestations based on the following ranking: 

 Newly discovered infestations of species previously undocumented on the District, or 

with very restricted distribution. These species will also have an invasiveness 

ranking >60 or are unrated. 

 Newly inventoried remote infestations of tansy ragwort (Senecio jacobea), 

knapweeds (Centaurea spp.), Canada thistle (Cirsium arvense), European bird cherry 

(Prunus padus), and bird vetch (Vicia cracca) 

 New disjunct infestations in remote locations: wilderness, cabins, shorelines; 

infestations along trails, viewing platforms, boat launches, and docks; infestations 

along parking lots; infestations within administrative sites: campgrounds and picnic 

areas; and infestations along roadways. 

 Types of treatments: manual removal, competition with revegetation, shading, or weed 

whacking. Treatments should occur annually. Treatments should be monitored for at 

least three years following the year in which the last invasive species was detected and 

removed from the treatment site. 

 Revegetate bare soil if rapid natural revegetation is not expected. Plant or seed with 

native plant materials collected or propagated from local wild collections. Mulch with 

coconut fiber matting or local litter and duff or wood chips, if abundant. 

Wildlife 

Bears 

The following mitigation measures for guided nature-viewing visitors would lessen the impact to 

bears: 1) When bears are present in areas other than developed viewing sites, avoid guided 

activities (e.g. camping, hiking, nature tours, floatplane landing tours) within 500 feet of 

important foraging habitat (such as, but not limited to, anadromous streams or estuaries) to 

prevent disrupting bears and to reduce chances of human/bear incidents. Move further away if 

bears change behavior (e.g.: stop foraging, raise head). Outfitters, guides and clients are 

prohibited from approaching or chasing bears or buzzing bears with vehicles, OHVs, aircraft or 

boats. 2) Wildlife viewing tours at Margaret Bay shall be restricted to the existing platform and 

trail to provide bear refugia areas for foraging along Margaret Creek. No use shall be permitted 

on the lower bridge or associated road system. Guided bear viewing activities shall be restricted 

to the hours of 0800 to 1800 to allow bears time to feed at the falls when no people are present. 

Research show bears can be displaced from important foraging habitat by recreational activities 

such as bear viewing. 3) Practice good viewing etiquette in all areas to prevent bear/human 

incidents and leave all food and pets in the floatplane or boat. Information on safe and 

considerate bear and other wildlife watching (pamphlets, web links, etc) will be provided to 

outfitters and guides as appropriate. 
Draft Environmental Impact Statement 

Appendix D, Adaptive Management – Page 5 

Black Oystercatcher 

There are options to reduce the risk of affecting black oystercatchers in Alternatives B, C, and D. 

Potential effects of Alternative C would be reduced by lowering the allocation within the three 

recreational use areas occupied by black oystercatchers. Limiting recreational use within the 

nesting and fledgling period (late May through mid-August), and/or not allowing outfitter and 

guide use within a portion of the KMRD black oystercatcher range are in agreement with Forest 

Plan standards and guidelines for sensitive species and zoological special interest areas. 

This type of mitigation could also be used in 03 South Misty under Alternatives B and D to 

reduce the risk of affecting black oystercatchers within that known nesting area. 

Outfitter-guide proposals that include beach access or use within 03 South Misty, 04 Duke, or 21 

Percy/Hotspur/Mary Recreation Use Areas should be coordinated with the district biologist 

before permit issuance. 

Mountain Goat 

The following mitigation measures would lessen the chance of outfitter-guide activities causing 

stress related health issues or injury to mountain goats and to maintain sustainable goat 

populations for all alternatives: 

1) Newer research shows goats are more sensitive to aircraft disturbance than identified in Forest 

Plan standards and guidelines. The Forest Service does not regulate airspace, but recommends 

that aircraft maintain a 4,920 to 6,600 foot horizontal distance and at least 1,640 foot vertical 

distance from goats where terrain and weather conditions allow. Pilots will not compromise 

safety. 2) Limit other activities (camping/hiking) in subalpine/alpine ecosystem and avoid 

approaching or conducting other actions that elicit fright/flight behavior in goats (nervous 

glancing around, walking, and running). If this behavior is noted, immediately move quietly 

away from area to prevent injury to goats and/or abandonment of kids. 3) Do not authorize any 

additional guides or hunts until ongoing research is completed; afterwards coordinate any 

proposals with district biologist before issuing permits. 
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Appendix E 

Recreation Planning 

Project Report

   

1

Appendix E

Ketchikan‐Misty Fiords Ranger District

Recreation Planning Project Report

Prepared By:

Lorelei Haukness, Recreation / Wilderness Specialist

_________________________________________________________________________________________________________

Appendix E, Recreation Planning Project Report - Page 1
2

Ketchikan-Misty Fiords Ranger District (KMRD) 

Recreation Planning Project Report 

In January, 2009, Ketchikan-Misty Fiords Ranger District (KMRD) staff invited the public to 

participate in a District-wide recreation planning project that generally followed the multiplestep Limits of Acceptable Change (LAC) planning process. The goals of this planning effort 

were to involve the public in each of the following: 

 Identification of the key values and concerns related to recreational use on KMRD; 

 Development of study areas, or Recreation Use Areas (RUAs), that will facilitate 

outfitter/guide permit administration and be used to develop visitor capacities and guided 

use allocations; 

 Description and mapping of Recreation Opportunity Zones that will allow managers to 

provide the desired range of recreation opportunities and conditions across the District; 

 Identification of indicators and prescriptive standards (thresholds) that will be used to 

monitor visitor experiences and opportunities for solitude, and inform development of 

visitor capacity estimates; 

 Discussion about the amount of guided use that can be accommodated within each 

Recreation Use Area without causing unacceptable impacts to visitor experiences and 

forest resources; and 

 Identification of management actions that will be taken if conditions approach or exceed 

prescriptive management standards. 

Nine additional public meetings were held between January, 2009 and April, 2010. Information 

about public outreach and participation; meeting structure, discussions, and products; 

consultation that occurred with state and federal agencies, tribal governments, and local 

governments; and comments received from the public, is included in this report. 

The Limits of Acceptable Change (LAC) Planning Process 

In 1982, the U.S. Forest Service began applying the Limits of Acceptable Change (LAC) 

planning and management concept in federally-designated wilderness areas (Krumpe and Stokes 

2009). The process was developed in response to the realization that visitor capacities in 

wilderness could not simply be expressed as a number of visitors, and that the public wanted to 

play a participatory role in natural resource decision making related to visitor capacities. 

The problem with an approach to recreation management that relies solely on a numerical 

capacity analysis is that it focuses on the wrong question – how many visitors are too many – and 

implies that some specific use level signals the beginning of environmental deterioration and 

unsatisfactory recreational experiences (Krumpe and Stokes 1994). The result is that managers 

may restrict use when resource concerns arise, however ecological and social research studies 

consistently find that there is no clear or predictable relationship between use and impact. In 

most settings a little use causes most of the ecological impact, and additional use causes less and 

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Appendix E, Recreation Planning Project Report - Page 2 ____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan
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less additional impact. Factors such as site resiliency, visitor group size, mode of transportation, 

length of stay, season of year, and behavior patterns are far more important in determining 

impact than number of visitors (Hammitt and Cole 1987). 

The LAC planning approach has three important implications for managers: 

1) It focuses orientation on managing for desired conditions rather than merely controlling 

visitor numbers; 

2) places the issue of visitor capacity in a prescriptive, versus solely technical, context; and 

3) acknowledges the fact that decisions about what level of impacts are acceptable are 

value-based and should be informed by the viewpoints of managers as well as the public. 

The fundamental premise of the LAC planning approach is that change is a natural, inevitable 

consequence of recreation use and that the question managers should be asking about visitor 

capacity is not “How much use is too much?,” but “How much change is acceptable?” 

(Stankey et al. 1984). The LAC process involves the public in determining the amount of change 

that should be allowed to occur in different areas and what management actions are needed to 

establish or maintain desired future conditions. 

Outfitter and guide management inevitably involves some trade-offs. Managers seek to balance 

the objectives of providing opportunities for visitor use and enjoyment of National Forest System 

(NFS) lands while avoiding negative impacts to the qualities that draw visitors to an area like 

Southeast Alaska in the first place; qualities such as wildness, solitude, scenic beauty, and 

healthy fish and wildlife populations for both viewing and harvest. 

The KMRD Recreation Planning Project did not result in any changes to Land Use Designations 

(LUDs) or standards and guidelines identified in the Tongass National Forest Land and Resource 

Management Plan (Forest Plan). However, the recreation plan will be much more specific in its 

guidance for recreation use of the KMRD than in the Forest Plan. 

 

The need to establish visitor capacities and guided use allocations were a key driver for this 

planning project. Forest Service regulations and policy do not prescribe a specific method for 

estimating a numerical capacity, however researchers and managers generally agree that visitor 

capacity can be determined only when prescriptive management objectives are explicitly defined, 

that those management objectives should be formulated and expressed in terms of indicators and 

standards (Newman et al. 2001, Haas 2007, and Whittaker et al. 2010), and that recreation 

managers should involve the public in developing visitor capacities. District staff decided that 

capacities and guided use allocations should be developed as part of a larger planning 

framework. For additional information about the capacity analysis that was completed as part of 

the KMRD Recreation Planning Project, see the KMRD Outfitter and Guide Management Plan 

Environmental Impact Statement (EIS), Appendix C. 

Public Meeting Structure 

The Ketchikan-Misty Fiords Ranger District held ten public meetings in Ketchikan, AK, to work 

through the Limits of Acceptable Change (LAC) planning process. Meetings were open to all 

interested members of the public. 

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A neutral facilitator was contracted to assist with meeting preparation, management, and followup. Krumpe and Stokes (1994) note that it has been difficult to successfully apply the LAC 

planning process unless the groups involved perceive the person(s) leading the process to be 

impartial and completely open to everyone’s ideas. Evaluation forms completed by participants 

indicated that the use of a facilitator was a valuable investment; several participants noted the 

positive role the facilitator provided in meeting management. 

Many of the positive aspects of using an LAC –based planning approach accrue from the use of a 

transactive planning style (Krumpe and Stokes 1994). The transactive planning approach 

recognizes that problems can be effectively resolved through dialogue, mutual learning, and 

decisions that include those affected. In transactive planning, the planner is more of a facilitator 

than a technician. The planner is not insulated from the social and political context, but 

recognizes it and operates within it. Benefits of transactive planning include improved mutual 

learning, improved transfer of knowledge, better utilization of participants’ knowledge, greater 

acceptance of divergent viewpoints, and a shared commitment to the decisions made. The LAC 

planning process also provides a system of decision making that, even for those who have not 

participated, is trackable and traceable. 

Public input was systematically incorporated into the process of establishing District-wide 

Recreation Opportunity Zones, recreation management objectives, and visitor capacities. Each 

meeting built on information and products discussed at the previous meetings, so Forest Service 

staff emphasized the importance of sustained participation. In addition, a project website was 

regularly updated throughout the planning process and Forest Service staff encouraged those that 

could not attend to review the meeting notes, provide feedback, and call or email the project 

leader if they had questions or wanted to provide additional comments. 

The general goal of the meetings was to share information and gather comments from 

individuals. There was not an effort to identify “consensus” or make final decisions at the 

meetings. Forest Service staff made it clear that while comments would be incorporated 

throughout the process and inform the development of a proposed action, final decisions would 

be made in the National Environmental Policy Act (NEPA) - compliant KMRD Outfitter and 

Guide Management Plan EIS. 

In an effort to encourage participation in meeting discussions, meetings were structured in a 

variety of ways. Small and large group discussions, small group exercises, mapping exercises, 

individual comment forms and worksheets, and presentations were used to share information 

between participants and Forest Service staff. The facilitator began each meeting with a brief 

review of the discussions that had been held in earlier meetings. A large number of new 

participants attended the January 28, 2010 meeting, so each of the remaining meetings began 

with an optional 1-hour review session for new participants. At the end of this general review 

session, work would continue on the next step in the planning process. Detailed information 

about the goals and products of each meeting is provided in this report. 

 

Public Outreach and Participation 

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On average, 20 participants attended each meeting. Public notices were placed in the Ketchikan 

Daily News for each meeting. Seven articles about the project were published in Ketchikan Daily 

News, including five front page articles and one editorial. One article was also published in 

Juneau’s Capacity City Weekly in February, 2010. Forest Service staff advertised the meetings 

through Ketchikan’s local radio stations, KRBD and KTKN, including two on-air interviews 

about the project. 

Meeting participants included Forest Service staff; council members from Metlakatla and the 

Ketchikan Indian Community; presidents of the Alaska Native Brotherhood and Sisterhood 

Camp 15; representatives from the outfitter/guide industry, Ketchikan Gateway Borough, the 

Ketchikan Outdoor Recreation and Trails Coalition; and residents of the local Ketchikan area. 

Tribes and corporations were invited to participate during the planning process and separate 

consultation was offered as requested. State and federal agencies were also asked to participate, 

and several Alaska Department of Fish & Game employees regularly attended the meetings. 

Other individuals and groups asked to participate include local governments, the Ketchikan 

Chamber of Commerce, environmental groups, and outfitters and guides authorized to operate on 

the Ketchikan-Misty Fiords Ranger District. 

Throughout the planning process, a project website was maintained so that people that could not 

attend the meetings had access to meeting agendas, presentation materials, and meeting notes. 

Comments could also be submitted online through the project website. 

Public Meetings 

January 29th, 2009 

In January, 2009 the KMRD held a public meeting at the Southeast Alaska Discovery Center in 

Ketchikan, AK to kickoff the Ketchikan-Misty Fiords Ranger District Recreation Planning 

Project. The purposes of this meeting were to describe the goals and proposed timeline for the 

project and introduce participants to the Limits of Acceptable Change (LAC) planning process. 

Twenty-five participants attended and were informed that an expected outcome of the planning 

project was to identify carrying capacities and outfitter and guide allocations that would provide 

opportunities for guided recreation while protecting forest resources and visitor experiences. 

District staff emphasized the importance of developing a sustained relationship with interested 

participants to ensure that meaningful dialogue could continue throughout the planning process. 

Prior to the kickoff meeting, district staff made an initial attempt to divide the KMRD into 

manageable study areas, or Recreation Use Areas, based on information about recreation use 

patterns, method of access, topographical features, and Land Use Designations (LUDs) identified 

in the 2008 Tongass National Forest Land and Resource Management Plan (Forest Plan). A map 

was created for each Recreation Use Area that identified existing dispersed recreation sites and 

outfitter and guide use locations. Following a formal presentation about the planning process, 

and question and answer session, participants spent time discussing individual maps with KMRD 

staff in an open house setting, and providing additional information about dispersed use locations 

and issues of concern. 

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Some key comments received at the first meeting included the following: 

 Concern about using a process called Limits of Acceptable Change; too much focus on 

limiting. This is a national planning process that was chosen because it involves the 

public in a series of planning steps. 

 The Forest Service should not distinguish between guided and public use. Guided clients 

are members of the public. 

 Desire to see the process for applying for and receiving permits streamlined. 

 Concern that many visitors living outside of Ketchikan will not be adequately involved in 

the process. 

 Concern that the district will be managed primarily for commercial enterprise. 

 Interest in knowing when the official comment period would begin. 

 Desire not to have public meetings during the busy summer months 

The kickoff meeting was heavily attended by outfitter/guides, so Forest Service staff made 

additional effort to involve local sporting and conservation organizations, including Ducks 

Unlimited, Trout Unlimited, Ketchikan Rod and Gun Club, Ketchikan Outdoors Recreation and 

Trails Coalition, Southeast Alaska Conservation Council, Ketchikan Volunteer Rescue Squad 

and Ketchikan Snowmobiling Club in future planning efforts. 

February 26th, 2009

The purpose of this meeting was to identify key values and concerns associated with recreation 

on the district. Twenty-two participants attended the meeting and Forest Service staff reiterated 

the goals of the project for newcomers. Following a round of introductions, participants were 

broken into small groups and asked to identify key values and concerns related to recreational 

use of the district. Participants were asked to consider both the ecological and social values 

provided on the district, and to focus on both the attributes that were most important to them and 

the attributes that they thought were likely to be at risk with high levels of recreational use. 

Values identified by the participants were: 

 Access for guided and unguided recreation activities (e.g. importance of buoys, trails, 

cabins, and facilities that help people enjoy the area) 

 Cultural, resource, and economic values associated with subsistence harvest 

 Economic value of guided recreation and its contribution to a healthy local economy 

 Social and ecological values associated with wildlands, including visitor experience of 

solitude, opportunities for primitive and dispersed recreation, clean air, and healthy 

wildlife populations. 

 Importance of protecting traditional ways of life and sacred sites 

Concerns identified by participants included the following: 

 Crowding 

 Need to balance guided and unguided use and minimize conflicts between the two, 

particularly in areas closer to town that are popular with local residents; competition for 

use of cabins, beaches, and fishing areas 

 Impacts to resources including trash, pollution, and noise from cruise ships and 

floatplanes 

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 Potential for impacts on traditional uses and users of the land 

 Need to educate people about opportunities in different parts of the district 

 Need access for people with disabilities 

 Concern about impacts from activities on saltwater and air traffic, which are not under 

the Forest Service jurisdiction 

 Concern about impacts of guided fishing activities on fish populations, particularly 

steelhead, in areas popular for guided and unguided use 

March 31st, 2009

The purpose of this meeting was to identify and describe the Recreation Opportunity Zones, or 

types of recreational settings, desired across the KMRD. The Ketchikan-Misty Fiords Ranger 

District is diverse in terms of the experiences offered. It’s a goal of the Tongass National Forest 

to provide a range of recreation opportunities consistent with public demand, emphasizing 

locally-popular recreation places and those important to the tourism industry (Forest Plan). 

Prescriptive management zoning allows for a variety of social, ecological, and managerial 

settings across the District (Forest Plan). Resource conditions address the amount of on-theground impact and development that is desired or considered acceptable. Social conditions 

address the amount of opportunity provided to experience solitude and remoteness. Managerial 

conditions address the types and level of management activity desired or considered acceptable. 

Forest Service staff presented a draft version of the recreational opportunity zones to the 31 

participants who attended the meeting. The draft was developed based on input from the January 

meeting, examples from other Forests, and existing information about recreation settings on the 

District. Meeting participants were asked to work alone or in small groups to “test-drive” the 

draft management zones on areas of the KMRD where they recreate and/or take clients for 

guided recreation (Attachment 1). Participants were also asked to recommend changes to the 

draft management zones, including revised language, additional conditions that should be 

addressed, and the potential need for different zones. The results of this exercise were shared 

during a large group discussion. 

Meeting participants expressed the following concerns related to the draft opportunity zones: 

 Concern about the creation of “defacto wilderness” by lumping wilderness and nonwilderness portions of the district into a single opportunity zone 

 Concern that some of the zone descriptions should explicitly state that increases in site 

development (cabins, buoys) to accommodate demand were acceptable management 

options 

 Concern that guided group size and use will be limited in Wilderness, which is the most 

difficult part of the District to access. 

 Interest in having opportunities for solitude and undeveloped recreation both inside and 

outside of wilderness. 

In response to these concerns, one of the draft zones was split into two, and Forest Service staff 

clarified that standards for the primitive and semi-primitive wilderness zones would be applied 

only in federally-designated Wilderness. The exception to this is the Non-wilderness National 

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Monument portion of the district, which will be managed to provide the same recreational setting 

as the wilderness. 

In addition, language addressing guided use levels in the Primitive Wilderness and SemiPrimitive Wilderness zone descriptions was removed. Guided use allocations are addressed in 

the KMRD Outfitter and Guide Management Plan EIS based on conditions desired in individual 

Use Areas rather than opportunity zones. Allocations to guided and unguided use will seek to 

minimize conflicts with unguided visitors and those engaged in subsistence activities. 

A Semi-Primitive Non-Wilderness zone was created to protect opportunities for solitude, while 

allowing for potential development of additional facilities, outside of wilderness. This change 

also helps address concerns that limiting use in federally-designated portions of the District 

would result in crowding in areas close to town that are popular with unguided visitors. 

The “Roaded Accessible Zone” was renamed the “Natural Accessible Zone.” The Natural 

Accessible zone encompasses areas accessed by the Ketchikan road system, as well as roaded 

and more developed areas that are easily accessed from town (e.g. Margaret Bay or Naha River). 

These areas in general will provide facilities for public use and resource protection. 

The following recreation opportunity zones, which represent the range of desired recreation 

conditions and opportunities that will be provided on the District, were identified (Attachment 

1): 

 Primitive Wilderness 

 Semi-Primitive Wilderness 

 Semi-Primitive Non-Wilderness 

 Natural Accessible 

April 30th, 2009

The purpose of this meeting was to present monitoring information that has been collected by 

KMRD staff about recreation use and impacts. The Forest Plan includes goals and objectives for 

Forest management. In addition, the Wilderness Act states that wilderness areas will remain 

“unimpaired for future use and enjoyment as wilderness, and so as to provide for the protection 

of these areas, [and] the preservation of their wilderness character...” The Forest Service Chief 

has issued the 10-Year Wilderness Stewardship Challenge, which requires monitoring of specific 

elements in designated wilderness, including opportunities for solitude or primitive and 

unconfined recreation, campsite conditions, and outfitter/guide use. Monitoring helps evaluate if 

legal requirements, and goals and objectives outlined in the Forest Plan, are being met. 

Monitoring also helps managers see the effects of current management decisions and determine 

where and when changes are needed. 

KMRD staff presented information about dispersed recreation site impacts and occupancy rates, 

social encounter rates, amount of guided floatplane landings occurring at lakes, guided use 

amounts and activities by location and recreation use area, public recreation cabin use, sound 

monitoring on the wilderness portion of the district, trail use, and visitor surveys. It is important 

to note that much of the monitoring information collected on the District is collected 

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opportunistically, when other job duties are also being completed in an area. A statisticallysignificant research design is not currently being used to collect any monitoring data related to 

recreation use and social conditions. Nevertheless, the data collected provides valuable 

information about patterns of recreation use and current conditions on the district. This 

information was used throughout the planning process to inform decisions about what types and 

levels of recreation use are appropriate for different recreation opportunity zones and recreation 

use areas. 

Twenty-five people attended this meeting. Participants expressed an interest increasing public 

involvement in encounter monitoring, which would increase the amount of information 

available, particularly for the non-wilderness portion of the KMRD. Forest Service staff has 

worked with Alaska Department of Fish and Game (ADF&G) administrative personnel on the 

Unuk River to monitor encounters in the past. There may be additional opportunities to expand 

this monitoring program by working with outfitters/guides. 

Participants also commented that it is important for the Forest Service to track visitor complaints 

and emphasize monitoring in areas for which there are more complaints received. Monitoring 

has, and will continue to, focus on areas where complaints are received and/or conditions are 

approaching standards. The following is a list of monitoring efforts and information that were 

discussed with participants: 

1) Dispersed recreation site monitoring.

Dispersed recreation sites are areas that exhibit visible and measurable impacts from people 

camping or otherwise using National Forest System lands. Forest Service staff monitor dispersed 

recreation sites for use and impacts, complete a site monitoring form, and assign a numerical 

rating that can be used to measure change over time. Approximately 200 sites have been 

inventoried on the KMRD; high impact sites are monitored every two years. 

Monitoring dispersed recreation sites helps the Forest Service (1) track physical impacts to these 

sites and establish strategies to offset the impacts; (2) understand visitor use patterns and levels 

of use; and (3) make informed management decisions about outfitter guide permitting, site 

improvements and education needs. 

2) Social Encounter Monitoring 

The Forest Plan directs the FS to manage recreation activities so that the level of social 

encounters does not exceed standards identified in the Forest Plan, Appendix I, and to protect 

opportunities for solitude, quiet and a sense of remoteness, particularly in designated wilderness. 

An encounter is defined as “an individual or group met while on National Forest System (NFS) 

lands or freshwater lakes.” An encounter may occur at a Forest Service cabin, on a trail, or along 

a shoreline, among other places. It is only a considered an “encounter” when both parties are on 

National Forest System lands. 

Documenting encounters among groups in wilderness is considered important to understanding 

how well a wilderness provides opportunities for solitude, one of the fundamental aspects of 

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wilderness character to be protected under the Wilderness Act (Broom & Hall 2009). Early 

research in wilderness focused on measuring the amount of visitor use in relation to crowding 

and carrying capacity (Cole 2001). Researchers have since recognized that use density itself does 

not directly affect visitors’ experiences – one has to be aware of other visitors for there to be an 

impact (Broom & Hall 2009). KMRD has been monitoring encounters since 2004 and these 

efforts have focused primarily on the wilderness portions of the district. 

3) Trail Use Monitoring 

The Forest Service has been collecting information about trail use on remote trails since 2008. 

While visitor use is higher on trails accessed via the Ketchikan-area road system, less 

information has been collected on these trails. Monitoring remote trail use allows the Forest 

Service to determine where the unguided public is going and where additional resources should 

be put into improving trail conditions and access to recreational opportunities. 

4) Cabin Use Monitoring 

Paid use of the KMRD’s 27 public use cabins is tracked through the National Recreation 

Reservation Service. There was a decrease in cabin use in the 1990s, but use has been increasing 

slowly in recent years. Cabins closer to town and those located on saltwater, such as Helm Bay 

and Fish Creek, experience the highest use. Cabins that require floatplane travel for access 

receive less visitor use. 

5) Visitor Interviews 

Public comment cards were distributed to guided and unguided visitors in 2008. As a result, 26 

voluntary respondents (2 guided, 24 unguided) were interviewed about their recreation 

experiences on the District. Average length of stay on the KMRD for surveyed visitors was four 

days. When asked what the best part of their trip was, visitors noted the scenery (62%), 

solitude/remoteness (42%), wildlife viewing (31%), and visitor facilities (23%). These responses 

are consistent with a visitor survey conducted in 1988 for Southeast Alaska. Outstanding scenery 

was identified as the most cited reason for visiting the region (Table 2-EIS), with wildlife 

viewing the second most cited reason. Visitors reported that the least desirable part of their 

experience on the KMRD was noise made by boat and floatplane traffic (27%), lack of visitor 

facilities (15%), lack of information available prior to visiting the district (12%) and 

campsite/cabin conditions (12%). 

6) Sound Monitoring 

In 2008 and 2009, the KMRD adapted methods used by the National Park Service to collect 

electronic audio recordings at remote locations in Misty Fiords. Information gathered includes 

measurements of the number, duration and intensity of human created motorized sounds. 

7) Guided Use Monitoring 

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Guided use of National Forest System (NFS) lands requires a special use permit. 

Outfitters/guides are required to report information about their use at the end of each year. Forest 

Service staff using this information to monitor the number of guided groups per year using 

different locations and areas, guided group size, types of guided activities occurring, and length 

of time spent on NFS lands. 

September 28th, 2009

Following four public meetings during the winter and spring of 2009, there was a break in the 

meeting schedule based on requests from participants to avoid scheduling meetings during the 

busy summer season. Meetings resumed in September, 2009. 

The purpose of this meeting was to discuss indicators and standards that will be used to monitor 

and manage visitor experiences on the KMRD. An indicator is an element of the social or 

ecological setting that changes in response to human activities, such as the number of new 

dispersed campsites that are created by use, or the number of lake landings in a day. A standard

was established for each indicator and each recreation opportunity zone. Standards are 

thresholds that, if exceeded, would constitute unacceptable impact to ecological conditions or 

visitor experiences. Monitoring of the selected indicators will be used to determine if conditions 

are nearing or exceeding standards and where, when, and what type of management actions may 

be needed. 

Indicators should be measurable (e.g. number of encounters per day) and related to key values 

being protected. A good indicator is characterized by the following: 

 Quantitative – can be measured quantitatively 

 Responsive – detects a change in conditions which is responsive to management control 

 Early warning ability – alerts managers to deteriorating conditions before unacceptable 

changes have occurred 

 Significant – detects change in conditions which persist for a long time, disrupt ecosystem 

functioning, or reduce future desirability of the area 

 Reliable – can be measured reliably (i.e. with training, will different observers collect the 

same information?) 

 Feasible – can be measured by field personnel using simple equipment and sampling 

techniques 

Prior to the meeting, Forest Service staff worked with resource specialists and ADF&G 

biologists to identify potential ecological and social indicators for the KMRD. Draft indicators 

were developed based on comments received during the early phases of the KMRD Recreation 

Planning Project, feedback from resource specialists, and insights gained from similar planning 

processes that have occurred for other areas. Several indicators were considered, and two were 

carried forward based on the rationale provided in Table 3. 

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Table 3. Indicators considered for the KMRD Recreation Planning Process 

Indicator Rationale for Consideration Comments 

# of groups encountered 

per day 

 Visitor interviews and comments 

received during the public meeting 

indicate that KMRD visitors highly 

value solitude 

 Baseline data has been collected for 

most parts of the KMRD 

 Measure used in the Forest Plan 

Recreation Opportunity Spectrum 

(ROS) 

 Impact on visitor experience 

depends on several variables 

related to the encounter (e.g. 

type of visitor group 

encountered) – not just the 

number per day 

# of occupied campsites 

within sight or sound of 

each other 

 Visitor interviews and comments 

received during the public meeting 

indicate that KMRD visitors highly 

value solitude 

 Lack of quality baseline 

information for the KMRD 

# of high-intensity 

motorized sound events 

per day 

 Visitor interviews and comments 

received during the public meeting 

indicate that KMRD visitors highly 

value solitude 

 Lack of baseline information 

available 

 Not necessarily responsive to 

management control as 

overflights are outside of 

Forest Service jurisdiction 

# of guided aircraft lake 

landings per day per lake 

 Extensive amount of baseline 

information available 

 Reliably and inexpensively 

monitored 

 Visitor interviews and public 

comments indicate that there is 

concern about the impact of 

floatplanes on the wilderness 

character of Misty Fiords National 

Monument Wilderness 

 Responsive to management control 

 Tied to opportunities for 

solitude versus actual 

experiences (manager input 

versus visitor experiences) 

 Lack of information available 

about how visitor experiences 

are impacted by lake landings 

and what number of landings 

is acceptable 

# of highly-impacted 

campsites 

 Large amount of baseline data 

available 

 Can provide an early warning that an 

area is becoming increasingly 

popular 

 Lack of significance – not 

related to key values and 

concerns identified during the 

planning process 

Air quality measurement  Baseline data collected for lowelevation areas on the KMRD 

 Lack of baseline information 

for high-altitude areas 

 Not a limiting factor in 

capacity development 

 Difficult to measure 

responsiveness to 

management actions; address 

regional impacts in 

cumulative impacts analysis. 

 

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The following two social indicators were selected and Forest Service staff will continue to 

monitor them as an indication of the types of visitor experiences offered across the KMRD: 

1) Number of encounters1

 per day during trip 

2) Number of guided floatplane landings per day per lake2

These indicators were chosen because they are related to key values identified by participants 

(e.g. opportunities for quiet and solitude) and they are relatively simple and cost-effective to 

monitor. At the meeting, the public expressed concern that no indicators related to ecological 

conditions (e.g. fish populations) had been identified. Forest Service staff worked with ADF&G 

biologists and district resource specialists to try and identify ecological indicators that could be 

effectively monitored on the KMRD. Unfortunately, there is a lack of baseline information 

available, and a lack of resources to expand monitoring efforts, on the District. A review of 

previous LAC planning efforts reveals the challenges associated with finding good indicators. 

Managers are often only able to monitor a limited number of indicators reliably with the 

resources available (Merigliano 1989). 

One way that managers can address these challenges is by identifying which resources are most 

likely to be at risk with high levels of visitors use (Cole and Carlson 2010) and identifying 

indicators and standards related to those resources. For the purposes of this planning process, 

environmental factors were considered but indicators have been tied primarily to social factors 

due to the district’s conservative approach to account for the “Alaskan Experience3

” many 

visitors expect. This is consistent with previous outfitter/guide management planning efforts on 

other districts of the Tongass National Forest. 

A standard (threshold) is a specific measure (e.g. two encounters with other groups per day) of 

acceptable conditions developed for each indicator in each opportunity zone. Defined as a 

probability (e.g. no more than three encounters per day 80% of the time), standards are 

judgments based on values, therefore managers must make decisions related to standards with 

appropriate input from stakeholders. Cole and Carlson (2010) note that: 

There is no magic and little science in the establishment of quantitative 

thresholds, although it is helpful, when defining them, to have 

information on current conditions. [Standards] should be thought of as a 

balance between preserving desired conditions and avoiding excessive 

regulation and restriction on access. Thresholds should be set at a level 

where it would generally be acceptable to limit use in order to avoid 

exceeding the thresholds. 

                                                           

1 An encounter is defined as “an individual or group met while on National Forest System (NFS) lands or freshwater lakes.” An encounter may

occur at a Forest Service cabin, on a trail, or along a shoreline, among other places. It is only a considered an “encounter” when BOTH PARTIES

are on National Forest System lands. 2 Information is based on actual use reports submitted annually by outfitters/guides operating on the KMRD under special use permit. If the

guided activity requires a drop off and pick up (e.g. a tour where clients are left at a location with a guide and later picked up by the pilot), this

use will only be counted as one landing for the purposes of this monitoring. Guided use reports include information about locations used,

number of individuals and group visiting each area, method of transportation, and the amount of time spent on National Forest System lands. 3 During the LAC process, the participants felt that most visitors came to Alaska to experience remote areas, with vast vistas, clean air, few

encounters with others, and abundant wildlife and fish. They described this as the Alaskan experience. The Alaskan experience attributes could

also be defined as ranging from the Primitive to Semi‐primitive Motorized ROS Classes (USDA Forest Service 2008b, Appendix I, pages I‐1 to I‐3).

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Table 4 identifies the standards that were established for four recreation opportunity zones on the 

KMRD. Several changes were made to the original draft based on the following concerns 

identified by participants: 

 Concern that the proposed standard of zero to two encounters per day for three of the four 

recreation opportunity zones was too restrictive. Monitoring data indicate that existing 

encounters levels are far below the proposed level (range from 0.0 to 0.67 encounters per 

day), with the exception of encounter rates for the Misty Core Lakes Use Area, an area 

that we receive complaints about annually. Based on professional judgment and 

knowledge of existing use patterns, allowing anywhere from 5-10 times the existing 

encounter levels may not provide the types of recreation settings desired on the district. 

By including a probability in the standard, there is a built-in allowance for conditions to 

exceed established standards up to 10% of the time in wilderness and up to 20% of the 

time in non-wilderness. 

 Desire to allow for additional guided floatplane landings on lakes that are not accessible 

by trail from saltwater and/or do not have public recreation cabins. Allowing for higher 

levels of guided use on these lakes are not as likely to impact visitors staying at cabins or 

accessing lakes via saltwater. In response to this comment, different standards were set 

for lakes with and without public recreation cabins. 

 A standard of six encounters per day is likely too low in the Ketchikan Core NA and Naha 

Use Areas. In response to this comment, Forest Service staff increased the standard for the 

Natural Accessible recreation opportunity zone to no more than eight encounters per day 

80% of the time. 

Table 4. Indicators and Standards for the four KMRD Recreation Opportunity Zones 

 Recreation Opportunity Zone 

 Primitive Wilderness Semi-Primitive 

Wilderness 

Semi-Primitive NonWilderness Natural 

Accessible 

Indicator Standard 

# of encounters per 

day 

No encounters per day 

during trip 80% of the 

time. 

No more than two 

encounters per day 

during trip 80% of the 

time. 

No more than two 

encounters per day 80% 

of the time. 

No more than 

eight 

encounters per 

day 80% of the 

time. 

# of guided lake 

landings per day 

per lake 

No more than one 

guided floatplane 

landing per day per lake 

90% of the time. 

No more than two 

guided floatplane 

landings per day per 

lake 90% of the time on 

lakes with public 

recreation cabins 

OR 

No more than five 

guided floatplane 

landings per day per 

lake 90% of the time on 

lakes without public 

recreation cabins. 

No more than two 

guided floatplane 

landings per day per 

lake 90% of the time on 

lakes with public 

recreation cabins 

OR 

No more than five 

guided floatplane 

landings per day per 

lake 90% of the time on 

lakes without public 

recreation cabins. 

No more than 

eight guided 

floatplane 

landings per 

day per lake 

90% of the 

days during the 

primary use 

season1

. 

1

Note: this standard does not apply in the Ketchikan Core NA Use Area, where guided floatplane landings are 

prohibited. 

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November 4th, 2009

The purpose of this meeting was to allocate each of the 28 Recreation Use Areas to one of the 

four Recreation Opportunity Zones. Forest Service staff began by presenting monitoring 

information related to social encounters and guided lake landings in an effort to facilitate 

additional discussion about standards. Individual comment forms were provided and eight 

meeting participants were asked to consider desired future conditions and standards identified for 

each of the four zones and information about existing conditions when commenting on proposed 

recreation opportunity zone allocations. 

Monitoring data available for 15 of the KMRD’s recreation use areas indicate that social 

encounters levels are currently very low (Table 5). Most monitoring occurs during the summer, 

which is the primary use season. The average number of encounters per day during the summer 

season ranges from zero to 0.70 for 14 of the 15 recreation use areas. Encounters are higher in 

the Misty Core Lakes use area (average of 2.01 per day across the area). Conditions at two 

locations in the Misty Core Lakes Use Area, Big Goat Lake and Nooya Lake, exceeded 

standards established for encounter rates 8% and 70% of the days monitored between 2005 and 

2009, respectively. 

Table 5. Encounter monitoring data collected for the KMRD between 2005 and 2009 

Recreation Use Area1 # days 

monitored 

(2005-2009) 

Total # 

Encounters 

(2005-2009) 

Average 

encounters/day 

(2005-2009) 

# of days exceeding 

standard 

(2005-2009) 

01 West Misty 9 2 0.22 0 

02 Northeast Misty 4 0 0.0 0 

03 South Misty 21 1 0.05 0 

04 Duke Island 11 0 0.0 0 

06 Misty Core Lakes 58 117 2.01 18 days (31% of the 

days monitored) 

07 Walker Chickamin 1 0 0.0 0 

09 Alava Princess 

Manzanita 

13 0 0.0 0 

10 Rudyerd 

Winstanley 

47 33 0.70 0 

11 Gravina Island 9 1 0.11 0 

12 Bell Island 11 2 0.18 0 

13 East Cleveland 7 0 0.0 0 

14 West Cleveland 3 0 0.0 0 

15 Wilson / Bakewell 3 1 0.33 0 

27 Margaret Bay 1 3 3 0 

28 Naha Bay 6 3 0.5 0 1 Encounter monitoring data are collected by Forest Service staff opportunistically, not through a statistically 

significant research design. Monitoring does focus on known areas of concern or areas that we receive complaints 

about. Information is only provided for the 15 recreation use areas where encounter monitoring data has been 

collected. 

Monitoring information collected about guided lake landings indicate that conditions are within 

standards in 27 of the 28 recreation use areas, with the exception of the 06 Misty Core Lakes Use 

Area. Conditions at Big Goat Lake and Nooya Lake exceeded standards for the semi-primitive 

wilderness recreation opportunity zone between 2005 and 2009. Big Goat exceeded standards 17 

days during the 2007 summer season (12% of the time). Nooya Lake exceeded standards 21 to 

44 days per summer season during the years 2006-2009. Lake landings in the primitive 

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wilderness, semi-primitive non-wilderness, and natural accessible opportunity zones are well 

within standards. 

Following a presentation of the monitoring information, participants were asked to comment on 

the proposed map for allocating each of the 28 Recreation Use Areas to one of the four 

Recreation Opportunity Zones. Several changes were made in response to the following public 

comments: 

 Consider allocating Walker Lake and Grace Lake to the semi-primitive wilderness zone. 

These lakes are not accessible by trails and do not have cabins, so they provide 

opportunities for guided floatplane landings with minimal impacts to other visitors’ 

experiences. 

 Consider whether additional fjords in the South Misty Use Area (e.g. Boca de Quadra, 

Wilson Arm, and Bakewell Arm) should be zoned as semi-primitive wilderness. 

 Concern about allocating all of the lakes and shoreline to the semi-primitive wilderness 

zone. Need for some lakes and bays in the primitive zone to provide a different type of 

opportunity. 

 Consider including the Wilson Bakewell Use Area in the semi-primitive wilderness zone. 

This change would be consistent with Forest Plan direction to provide the same natural 

setting and recreation experiences in the Non-wilderness National Monument as in the 

adjacent Wilderness National Monument areas (3-27). 

After the meeting, Forest Service staff considered the comments and produced a final map 

(Figure 1); each of the 28 Recreation Use Areas was allocated to one of the four Recreation 

Opportunity Zones. 

January 28th, 2010 – March 11th, 2010 

Three public meetings held in January, February and March of 2010 focused on discussions 

about carrying capacities and guided use allocations. Participants were given information about 

actual levels of guided use between 2004 and 2008. Several individuals submitted worksheets 

provided at the meetings and the meetings continued to be well attended (average of 23 

participants per meeting). The Capacity Report provides a detailed description of the methods 

used to calculate visitor capacities for the KMRD and how those methods were developed based 

on participant feedback. 

Factors considered by Forest Service staff when developing proposed guided use allocations, 

included 

 Land Use Designation (LUD) and Recreation Opportunity Zone; 

 activities taking place in an area and type of setting desired for those activities; 

 amount of infrastructure available to provide access and protect resources; 

 amount of unguided and subsistence use occurring in an area; and 

 sensitive cultural resources present in an area. 

Public comments received during these three meetings resulted in the upward and downward 

adjustment of guided use allocations based on the perceived demand for additional use and 

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availability of opportunities (upward), or concern about impacts to resources or unguided visitors 

(downward). The outcome of these meetings was development of a “proposed action” that could 

be carried forward in to the KMRD Outfitter and Guide Management Plan EIS. The proposed 

action was largely shaped by participants’ individual comments and input from Forest Service 

recreation planners and specialists. 

April 15th, 2010 

Eighteen participants attended this meeting. The purpose was to identify areas where current 

conditions are approaching or exceeding standards and discuss the types of management actions 

that could be used to bring conditions in these areas within standards. Forest Service staff also 

provided an additional opportunity for participants to review and comment on standards 

established earlier in the planning process. Forest Service staff also discussed possible criteria 

that could be used to adjust allocations during the approximately 5-year life of the KMRD 

Outfitter and Guide Management Plan EIS. 

Capacities are not always the most effective tool for achieving management objectives, 

particularly when the relationship between the amount of use and impacts is weak or poorly 

understood (Whitaker et al. 2010). In such cases, it is important that managers consider actions 

besides limiting use. Meeting participants were divided into four small groups and provided with 

four visitor use management scenarios. They were asked to brainstorm potential management 

actions that could occur in response to the scenarios. 

The following potential management actions were identified by Forest Service staff and 

participants: 

 Provide information to visitors about the types of recreation settings available on the 

district so as to manage visitor expectations. 

 Provide information about camping opportunities on the district, particularly in areas 

such as Punchbowl Cove where crowding can be a problem for overnight visitors. 

 Provide additional facilities outside of wilderness to accommodate demand. Increase 

access to opportunities (e.g. trails, cabins, buoys). 

 Provide additional educational opportunities (e.g. Leave No Trace training) to the guided 

and unguided public to reduce impacts without restricting visitor numbers. 

 Encourage outfitters and guides to coordinate scheduling in areas where crowding is a 

concern and/or there is limited space available 

 Require guided visitors to use designated campsites 

 Limit guided use in the most popular locations 

 Limit guided group size 

 Separate guided and unguided visitors 

 Limit guided users’ length of stay in popular locations 

 Limit guided use on holidays and weekends 

A primary goal of wilderness management is to provide opportunities for solitude or primitive 

and unconfined recreation. Prior to limiting numbers or restricting locations and timing of guided 

use, Forest Service staff will ensure the accuracy of monitoring data, collect information about 

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the relationship between use levels and impacts, and attempt to determine the effectiveness of 

less restrictive management options. Education will be a primary focus in managing outfitter and 

guide use. Use restrictions (e.g. either by location or timing of use) may be needed in some areas 

where crowding and conflicts between guided and unguided visitors occur. 

Forest Service staff will continue to monitor conditions on the district. Site specific monitoring, 

including field inspections, is done as part of annual permit administration. In addition to this, 

staff will monitor social encounter rates across the district and number of guided lake landings 

per day per lake. Encounter rates provide an idea of the number of groups one can expect to 

encounter when visiting an area. Guided lake landings per day per lake provide a measure of the 

opportunities for solitude. Management actions identified in this document will occur if 

thresholds established during the planning process are approached and/or exceeded. 

References

Broom, T.J. and T.E. Hall. 2008. A guide to monitoring encounters in wilderness. Prepared for 

the U.S. Forest Service. University of Idaho, College of Natural Resources, Department of 

Conservation Social Sciences. Moscow, Idaho. 

Cole, D. and Thomas Carlson. 2010. Numerical visitor capacity: a guide to its use in wilderness.

Gen. Tech. Rep. RMRS-GTR-247. Fort Collins, CO: U.S. Department of Agriculture, Forest 

Service, Rocky Mountain Research Station. 20 p. 

Haas, Glenn E. 2007. The Myths of Visitor Capacity. Parks & Recreation September 2007”The 

Myths of Visitor Capacity” 

USDA Forest Service. 2008. Tongass Land and Resource Management Plan. Tongass 

National Forest. R10-MB-603b. USDA Forest Service, Alaska Region, Juneau. 

Merigliano, Linda. 1989. Indicators to Monitor the Wilderness Recreation Experience. Presented 

at Managing America’s Enduring Wilderness Resource: A Conference, Minneapolis, MN, 

September 11-14, 1989. 

Newman, P., J. L. Marion, and K. Cahill. 2001. Integrating resource, social, and managerial 

indicators of quality into carrying capacity decision-making. George Wright Forum 18(3): 28-40. 

Whitaker, D., B. Shelby, R., Manning, D., Cole, and G. Haas. 2010. Capacity Reconsidered: 

Finding Consensus and Clarifying Differences. National Association of Recreation Resource 

Planners, Marienville, Pennsylvania. (www.narrp.org) 

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Appendix E, Recreation Planning Project Report - Page 18 ____________________________________________________________ Ketchikan-Misty Fiords Outfitter and Guide Management Plan